2005-06

Transcription

2005-06

Rebuild, Revive
With
Dignity & Hope
Annual Review
2005 to 2006
Annual Review 2005-2006
Earthquake Reconstruction and Rehabilitation Authority
Prime Minister Secretariat, Islamabad.
Website: http://www.erra.gov.pk
Published: October 2006
For official use only
Copyright © Earthquake Reconstruction and Rehabilitation Authority
Compiled by: Khadija Khan, Consultant ERRA
Edited by: Omar Hameed & Mujahid Sherdil, ERRA Team Members
Designed & Printed by: The Army Press® Islamabad
Tel: +92-51-2105034-35
This publication is the first Annual Review of ERRA. It consists of information collected and/or adapted from various internal and external
sources in a very short time. There may be some errors or omissions, which is regretted.
Contents
Acronyms
i
Foreword
ii
Progress at a Glance
1
Chapter
Chapter
Chapter
Chapter
Chapter
–
–
–
–
–
1
2
3
4
5
Chapter – 6
Chapter – 7
Chapter – 8
Overview
Response to Earthquake
Challenges
Converting Adversity into Opportunity
Reconstruction and Rehabilitation
Umbrella Programme
Sponsorships –
Unprecedented Display of Cooperation
Monitoring and Evaluation
Financial Management
Perceptions:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii
9
13
25
29
35
65
67
71
79
Earthquake 2005 – From Tragedy to Triumph
Reflections on the Past Year
Pakistani and UNDAC Cooperation in the 2005 Pakistan
Earthquake and Aftermath
How Life Changes
Earthquake of October 8th and Lessons Learned
Better Preparedness for Natural Disasters can Save Lives
and Livelihoods
Earthquake 2005 – Challenges of Reconstruction
Lessons Learned from the South Asian Earthquake
of Oct. 8, 2005
81
84
86
91
93
95
97
99
Annexes:
i.
ii.
Reconstruction Cost
WB Review – Executive Summary
105
106
Tables
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
Table
2.1
2.2
2.3
5.1
5.2
5.3
5.4
5.5
5.6
5.7
5.8
5.9
5.10
5.11
5.12
5.13
5.14
6.1
8.1
8.2
8.3
8.4
8.5
Damages Caused by Earthquake October 8, 2005
Relief Delivered to the Affected Population
Funding Overview of the Early Recovery Plan
Total Destroyed and Damaged Housing Units
Cost of Damages in Education Sector
Number of Academic Institutions Planned
Progress of Reconstruction in Health Sector
Damaged Water Supply Schemes in NWFP
Damaged Water Supply Schemes in AJK
District Progress on Water Supply Schemes
Damage Caused to Power Sector in AJK
Damage Caused to Power Sector in NWFP
Damage to National Highways
Summary of Roads/Bridges Damage in AJK
Summary of Roads/Bridges Damage in NWFP
Annual Targets for National Highways
Estimated Reconstruction Cost of Tourism Lodges
Financial Commitment by Sponsors
Budget Estimates / Resource Requirements
Appropriation Account 2005-2006 – Grant No. 127-A
Entry Statement of Sources and Uses of Funds
Programme Components of Activities
Overall Physical Progress Monitoring Report
Figures
Figure-1
Figure-2
Figure-3
Figure-4
Figure-5
Functional Organizational Structure – ERRA
ERRA Organogram
Damage Caused to Education Sector - NWFP
Damage Caused to Education Sector - AJK
Damage Caused to Health Sector NWFP and AJK
Boxes
Box-1
Box-2
Box-3
Box- 4
Box- 5
Naqsha Bibi – The Miracle Woman
Main Challenge
Four Critical Decisions
Quote
The Spring of Motivation
Acronyms
ADB
AIT
AJK/AJ&K
BHU
BOQ
CDD
CBO
CRLP
DFID
DG
DEWS
DCO
DRAC
DRU
ECNEC
EIA
ERP
EMEF
EQ
ERRA
ERC
EU
FRC
FAO
FHA
GTZ
GOP
HH
HRC
ICE
ICRC
IDP
IO
IDB
IFAD
JBIC
JICA
KKH
KPIs
KFW
LWCs
LGRDD
Asian Development Bank
Assistance and Inspection Team
Azad Jammu and Kashmir
Basic Health Unit
Bills of Quantity
Civil Defense Department
Community Based Organization
Community Level Rehabilitation Plan
Department For International Development
Director General
Disease Early Warning Systems
District Coordination Officer
District Reconstruction Advisory Committee
District Reconstruction Unit
Executive Committee of National Economic Council
Environmental Impact Assessment
Early Recovery Plan
Earthquake Monitoring and Evaluation Framework
Earthquake
Emergency Recovery Credit
European Union
Federal Relief Commission
Food and Agricultural Organization
Frontier Highway Authority
German Agency for Technical Cooperation
Government of Pakistan
Household
Housing Reconstruction Center
Information, Communication and Education
International Committee for Red Cross/Red Crescent
Internally Displaced Persons
International Organization
Islamic Development Bank
International Fund for Agricultural Development
Japan Bank for International Cooperation
Japan International Cooperation Agency
Karakurum Highway
Key Performance Indicators
Kreditanstalt fuer Wiederaufbau
Livelihood Working Committees
Local Government and Rural Development Department
i
MIS
MOU
M&E
MC
NADRA
NDMA
NESPAK
NHA
NRM
NGO s
NWFP
PPAF
PTCL
PWD
P&DD
PSC
PC-1
PERRA
PHED
RHC
SCO
SDC
SERRA
SFD
TAMEER
TMA
TRC
UN
UNICEF
UNDP
UNDAC
UNEP
UNESCO
UNOCHA
UNFPA
UET
USAID
VHH
WB
WFP
WHO
ii
Management Information System
Memorandum of Understanding
Monitoring and Evaluation
Municipal Corporation / Municipal Committee
National Database and Registration Authority
National Disaster Management Authority
National Engineering Services Pakistan
National Health Authority
Natural Resource Management
Non-Governmental Organizations
North West Frontier Province
Pakistan Poverty Alleviation Fund
Pakistan Telecommunication Company Ltd.
Public Works Department
Planning and Development Department
Programme Steering Committee
Project Cycle -1/ Project Cost -1
Provincial Earthquake Reconstruction and Rehabilitation Authority
Public Health Engineering Department
Rural Health Unit
Special Communication Organization
Swiss Development Cooperation
State Earthquake Reconstruction and Rehabilitation Authority
Saudi Fund for Development
Technical Assistance for Management of Earthquake Early Recovery
Tehsil Municipal Authority
Transitional Relief Cell
United Nations
United Nations Children’s Fund
United Nations Development Programme
United Nations Disaster Assessment and Coordination
United National Environment Programme
United Nations Education, Scientific and Cultural Organization
United Nations Office for Coordination on Humanitarian Assistance
United Nations Population Fund
University of Engineering and Technology
United States Agency for International Development
Vulnerable Headed Household
World Bank
World Food Programme
World Health Organization
FOREWORD
Pakistan is prone to frequent disasters that inflicted severe losses to property and
lives. More frequent disasters are floods, drought and earthquake. However, history
reveals that earthquakes were the worst disaster regarding losses to lives.
Recent earthquake was unprecedented in the history of Pakistan. It damaged not
only the livelihoods but deprived the families of nine districts from their young
generation. It diminished the endowments and coping mechanism of the inhabitants.
Despite strenuous efforts by the government, international donors and civil society,
the region will take a long time to get back to normalization.
Just to recount the devastation, the earthquake killed 73,338 people; more than 50%
among them were children and women. It also seriously injured 69,412 and displaced
3.5 million people. About 30,000 sq. km area was affected, where infrastructure,
communication and crop land were severely damaged. It deprived 42,600 families
from earning members and made them dependant on the society. In addition, 600,000
houses, 6,298 schools and 796 health facilities were demolished. About 6,440 km
roads were damaged and 50-70% of the water supply, sanitation, telecommunication
and power infrastructure was rendered un-operational.
The first priority at the time of disaster was to save lives and secure the dignity of
affected population. On-setting of winter was countered with appropriate arrangements
to provide winterized tents and transition shelters to people in high altitude
mountainous areas. After six months, the emergency operation ended to mark the
beginning of recovery from the aftermath of the earthquake.
During transitional arrangements, particular attention was paid to make all the
schools and health facilities functional in alternate buildings within months to provide
services to the affected population on priority basis. At present all educational and
health facilities are functional, consequently bringing community life close to
normalcy. Some of the transition facilities are much better than the permanent
buildings which existed before the earthquake.
Next step is to move towards permanent and sustainable reconstruction and
rehabilitation of the affected areas, with the aim to ‘Build Back Better’ in terms
of physical infrastructure, size and scope of activities; and the quality of services
to the people. The strategy to provide cash grants for sustaining households and
house building proved successful in steering the society towards socio-economic
stability in a short period of time.
Earthquake Reconstruction and Rehabilitation Authority (ERRA) is mandated to
undertake the gigantic task of reconstruction and rehabilitation in the earthquake
affected areas in 12 major socio-economic sectors with the flagship programme on
‘Housing’ that includes rural and urban housing as well as town planning.
iii
This annual review is an effort to bring some facts and processes, to the knowledge
of our readers, of the efforts made to mitigate the sufferings of people during this
emergency. Despite the wide spread and complexity of the relief and recovery
operation, efforts were made to touch upon all major sectors and to make the impact
visible to the national and international community.
The review is dedicated to the memory of over seventy three thousand innocent
men, women and children, who lost their lives during the tragic earthquake of 8th
October, 2005; and to acknowledge all those individuals and organizations who
contributed and gave hope and courage to the survivors.
I avail this opportunity to acknowledge the contribution of our ERRA partners for
sharing their thoughts, and ERRA staff for their precise and useful contribution in
making the completion of this report to happen.
Indeed, I am very grateful to Lt. General Nadeem Ahmed for his vision and initiative
in completing this report, which is the first step in recognizing the efforts of ERRA
and its associated donors.
Altaf M. Saleem
Chairman
iv
PROGRESS at a GLANCE as on 20 September 2006
1. Contrary to general perception, a lot of
ground needs to be covered before the
reconstruction activities can be initiated in
the affected areas. Most of these preparatory
activities can be termed as intangible and
remain largely invisible to most people, but
consume a lot of time and effort. ERRA is at
a stage where all these preparations have
been completed and process of full-scale
reconstruction and rehabilitation has started
in most of the 12 sectors. The preparatory
activities completed so far include:
•
Establishment of Institutional Set-up:
Staffing, terms of reference and budgets
completed for ERRA, PERRA/SERRA and
DRUs, and establishment process
completed.
•
Damage Assessment: Detailed damage
assessment of all twelve sectors carried
out to derive accurate estimates and
budget requirements.
•
Seismic Zoning and Fault Line Mapping:
Detailed seismic zoning and fault-line
mapping carried out for identification
of danger zones and development of
appropriate construction guidelines and
standards.
•
Housing Damage Survey: Detailed
survey and assessment of over 600,000
private houses in rural and urban areas
through 770 teams to determine the
category of damage and level of financial
assistance.
•
Survey of Vulnerable Groups: Detailed
survey in 9 districts to identify the
vulnerable households eligible for cash
support during the interim period.
•
Housing Construction Guidelines and
Designs: Development of housing
construction guidelines and designs to
ensure construction of seismically safe
houses.
•
Establishment of Housing
Reconstruction Centers and Material
Hubs: To train master trainers, artisans
and beneficiaries before start of
reconstruction and provision of materials
at controlled prices.
•
Preparation of Sectoral Strategies:
Comprehensive reconstruction strategies
for 12 sectors, outlining damages, funding
requirements and budgets and
implementation approach.
•
Development of MIS and Database:
A well-designed MIS and database to
manage all information related to
housing, cash grants and other sectors.
•
Revision of Building Codes: Revision of
building codes to establish appropriate
building standards during reconstruction.
•
New Standard Designs for Health &
Education Facilities: Preparation of
new standard designs for health and
education facilities to ensure user friendly
and safe buildings for the future.
•
Preparation of Reconstruction
Packages and PC-Is: Packaging of
schemes to attract competent
contractors and preparation of PC-Is
thereof.
2.
Current progress in some of the
key sectors is as following:
2.1 Housing:
•
A total number of 577,062 rural houses
have been assessed and 536,648 MoUs
have been signed with the owners, out
of a total of 630,000 houses reported to
be damaged and destroyed. Funds
amounting to Rs. 29.82 billion have been
disbursed to 422,777 beneficiaries.
•
Bank/post office accounts have been
opened for over 600,000 beneficiaries
for direct transfer of compensation to
their accounts without the use of any
intermediary.
•
Comprehensive database containing
detailed assessment, picture of the
1
•
•
•
Final Master Plan of Muzaffarabad has
been prepared and presented by JICA on
September 2, 2006.
Under Grievance Redressal mechanism,
196,673 applications were received for
resurvey in both AJK and NWFP; out of
which 111,883 were accepted for
resurvey. Finally, 55,702 applications
were found eligible, and housing subsidy
was released to the applicants.
•
1st Draft of Master Plan for Bagh city is
prepared and presented by University of
Engineering and Technology (UET),
Lahore on September 18, 2006.
•
Master planning of New Balakot and
Rawlakot is under process.
In order to impart training, 12 Housing
Reconstruction Centers have been
established at strategic locations. So far
9,000 Master Trainers have been trained
at these centers who, in turn, have
trained 75,000 artisans and house-owners
in 282 affected Union Councils. An
outreach programme by these HRCs has
also been launched for direct training at
the village level to further increase the
number of skilled persons.
2.2 Livelihoods:
•
So far, 65 construction materials hubs
for the provision of key materials have
been established at controlled prices.
Process for establishment of satellite
hubs in remoter valleys has also started.
•
Initially three standard housing designs
based on stone, brick and block
construction were issued. Recently two
additional designs covering timber based
and RCC frame construction have also
been added to the menu.
•
An estimated 25% of the affected
households have started reconstruction
and majority of them are complying with
ERRA specified construction guidelines.
•
Plinth level inspection for the release of
3rd tranche of Rs.25,000 has started.
•
Additional funding for housing sector is
being negotiated and the potential donors
include ADB (US$ 300 million), WB (US$
200 million) and IDB (US$ 130 million).
•
2
destroyed/damaged house and picture
of the owner has been created for
monitoring and proper accountability.
Urban Housing Damage Assessment survey
is complete.
•
Livelihoods cash grants for vulnerable
households targeting about 250,000
households (HHs) was launched
immediately after the conclusion of relief
phase.
•
Registration of eligible households in all
nine districts has been completed.
201,598 eligible HHs identified on the
basis of eligibility criteria and payment
to all 201,598 HHs has started (@ Rs.
3,000 p.month/p. HH). These include
42,539 in Mansehra, 46,109 in
Muzaffarabad, 25,313 in Battagram,
11,323 in Abbottabad, 29,730 in Bagh,
29,738 in Poonch, 9,885 in Shangla, 3,847
in Kohistan and 3,114 in Neelum district.
•
An amount of Rs. 2.108 Billion has so far
been disbursed to the beneficiaries
through their individual bank/post office
accounts.
•
The cash grants programme is under
consideration to be extended for the
extremely vulnerable households for an
additional six months.
•
ERRA-UN Early Recovery Programme has
allocated US$ 95.6 million for 26
livelihood support programmes covering
crop inputs, animal restocking, microfinancing, rehabilitation of village
infrastructure, skill development and
agriculture tools.
•
Khushali Bank has started a Rs. 3 billion
micro-finance programme and
disbursement has started from August
2006. The programme is extremely
accessible for the poor and highly
subsidized.
•
A comprehensive US$ 51.86 million ERRA
Livelihoods Sector strategy has also been
approved which covers all aspects of
livelihoods in the affected villages and
also addresses concerned government
agencies’ capacity and reconstruction
needs.
2.3 Education:
•
All educational facilities have been made
functional through the provision of
interim structures like pre-fabricated
buildings and large weather-proof tents.
•
Comprehensive Reconstruction Strategy
has been finalized and approved by
competent forums. It takes into account
the rationalization, integration and upgradation aspects.
•
•
•
Out of 6,298 destroyed facilities, 25%
i.e. 1,574 facilities are earmarked for
reconstruction during 2006-7, costing
Rs.12 billion Funding for the first year
target has been secured through
government and donors/sponsors.
So far 115 project proposals on the
specified PC-I format have been prepared
and approved covering 600 schools worth
Rs.4 billion. Remaining proposals are at
various stages of processing and approval
and shall be finalized by middle of
October.
Pre-qualification of contractors has been
finalized and tendering/contracting for
the first packages of schools in eight
affected districts has started.
2.4 Health:
•
All health facilities have been made
functional through provision of interim
pre-fabricated structures. These are
further supported by emergency hospitals
established by various international and
national organizations.
•
Comprehensive health sector strategy
has been finalized and approved by the
ERRA Council.
•
After rationalization, 342 health care
facilities are rebuilt / retrofitted. Out
of which 139 are slated for reconstruction
during 2006-7. All these facilities have
been picked by various donors and
sponsors.
•
Prequalification of contractors has been
completed for facilities to be
implemented through ERRA. Tendering
process has been initiated and
reconstruction of these facilities will
start in October 2006.
2.5 Water Supply and Sanitation:
•
Water and Sanitation (WATSAN) strategy
covering water supply, sanitation, solid
waste management and reconstruction
of the buildings of relevant departments
has been finalized and approved by the
ERRA Council.
•
During the earthquake, 3,994 water
supply schemes of varying sizes were
destroyed; and all small and medium
schemes are targeted for completion
during 2006-7.
•
Funding/sponsorship for 2031 schemes
has already been secured and work has
started on 300 water supply schemes.
•
Design and cost estimation for the
departmental buildings has been
completed and PC-Is are in process of
approval. Award of construction contracts
is anticipated in October 2006.
2.6 Telecommunication:
•
Telecom sector strategy has been
finalized and approved by the ERRA
Council.
•
An umbrella programme proposal (PC-I)
costing Rs.630 million has been finalized
and approved by the ERRA Board.
3
•
•
Anticipatory approval of ECNEC is
underway and work shall start in October
2006 with a completion period of two
years.
2.9 Roads/Transport:
•
Transport sector strategy has been
council.
All telecom facilities in the meantime
are functional through alternate means
and all the affected areas are well-linked
to the rest of the country and in some
cases better off than the pre-earthquake
period.
•
Out of 6,480 km damaged and destroyed
by earthquake, funding for all NHA
related roads has been secured and the
proposal (PC-I) for these roads has been
approved by the ERRA Board. Anticipatory
approval of ECNEC is expected by end
of September and work shall
commencement of work by October 2006.
•
Project proposals (PC-Is) for all priority
provincial/state and local government
roads in AJK and NWFP have been
completed and are in process of approval
at various forums.
•
Process for the selection of consultants
for the detailed design and supervision
has been initiated.
•
Recruitment of incremental staff for
Works and Services Department (W&SD)
and Public Works Department (PWD) has
been initiated and dedicated Chief
Engineers have been appointed by the
two governments for better management
and fast track technical sanction.
•
All critical links have been kept open
with the assistance of Army Engineers
for uninterrupted supply of essential
goods and materials. This arrangement
shall continue until proper reconstruction
of roads is completed.
2.7 Power:
•
Power Sector strategy has been approved
by the ERRA Council.
•
Project proposals for the work related
to various agencies have been completed
and some have been already approved.
•
Work is planned for tendering tendered
in October 2006. Required funding is
available under Asian Development Bank
(ADB)‘s loan.
2.8 Governance:
•
•
Prioritization of buildings on specified
selection criteria has been completed
and PC-Is of all buildings targeted for
reconstruction in the first year have been
completed and approved by relevant
forums.
•
Pre-fabricated structures are being
provided to some of the critically
important offices with the assistance of
UNDP’s BEGINNER project.
2.10
•
Social Protection Strategy has been
Council.
Designing and cost estimation for the
purpose-built district complexes at Garhi
Dopatta (for Muzaffarabad), Bagh,
Rawlakot and Battagram is at advanced
stage and funding from various
donors/sponsors has been secured.
•
Based on the initial survey conducted
for Cash Grants Programme, a
comprehensive individual based
vulnerability survey has been initiated
with the assistance of UNFPA and Ministry
of Social Welfare.
•
4
Governance Sector strategy, aimed at
reconstruction and rehabilitation of all
damaged buildings of government
departments has been finalized and
approved by the ERRA Council.
Social Protection
•
•
A proposal (PC-I) worth Rs. 750 million
has been approved by the ERRA Board
for the establishment of rehabilitation
network and community based
rehabilitation system focused on the
disabled and paraplegics.
Dedicated coordinators are being
recruited for the regional and district
level with the assistance of UNDP’s
TAMEER project to effectively coordinate
and monitor the activities covered under
this strategy.
2.11
Environment:
•
Environment sector strategy has been
approved by the ERRA Council.
•
First environment sector project is being
launched in collaboration with UNDP
and UNEP in October 2006.
•
A comprehensive Rubble Removal
and Recycling proposal (PC-I) has
been approved for the safe removal of
rubble in Muzaffarabad, Bagh and
Rawlakot.
•
Belgian assistance has been secured for
the installation of modern rubble
recycling plant in Muzaffarabad.
3.
Earthquake Monitoring & Evaluation
Framework:
Within the presence of multiple sources of
funding and wide range of activities under
ERRA’s mandate, it is essential that ERRA
should have a comprehensive and credible
monitoring and evaluation framework that
meets international standards for transparency
in use of allocated funds and quality of
implementation. ERRA has, therefore, with
assistance from Department for International
Development (DFID), formulated a
comprehensive Monitoring and Evaluation
(M&E) framework which provides a uniform
and acceptable basis for accurate tracking of
funds from various sources, and quality and
efficiency of their usage in reconstruction.
5
Chapter — 1
Overview
1.1
Earthquake and Ensuing
Damages
The earthquake on 8 th October, 2005,
measuring 7.6 on the Richter Scale, caused
massive destruction, death, injury and
displacement in northern Pakistan. Most
affected were the districts of Abbottabad,
Mansehra, Battagram, Shangla and Kohistan
in the North West Frontier Province (NWFP)
and Muzaffarabad, Bagh, Neelum and
Rawalkot in Azad Jammu and Kashmir (AJK).
The magnitude of the disaster was such that
73,338 people lost their lives, 69,412 were
seriously injured, and nearly 3.5 million
people became displaced 1 . Total area
affected was 30,000 sq km covering nine
districts, 25 tehsils, and 4000 villages. The
earthquake destroyed or seriously damaged
600,000 houses, 796 health facilities, and
6298 schools and colleges in addition to
numerous government buildings and
communication infrastructure.
1.2
Emergency Relief and
Rescue Operation
The response from the government was
extremely swift. Immediately after the
disaster, two military divisions were mobilized
to the affected areas. The army moved fast
to evacuate the casualties. By the evening
of 8th October, hospitals in Islamabad and
Rawalpindi had already started to receive
hundreds of injured patients airlifted by the
army. On the same evening the engineers of
Pakistan army were mobilized to open road
access to the earthquake affected areas. A
lot of field hospitals were established to
provide emergency medical care to the
1
injured. Had it not been for the quick
mobilization and response from the Pakistan
Army, the ensuing successful conduct of relief
coordination and operations would not have
happened and may have resulted in a much
higher toll of human life.
1.3
Coming together of the
People of Pakistan and Civil
Society
People of Pakistan rose to the challenge and
opened their hearts to offer both material
and emotional support to the affected people
and provided the necessary fillip to the
emergency operation. People from across
the country reached out to the disaster areas
in NWFP and AJK with food supplies, water,
medical assistance, clothing, blankets and
other necessities. In tandem to the swift
response from the governments and people
at large, significant support from some 85
bilateral and multilateral donors, over 100
non-governmental organizations and the
private sector organizations came forth.
1.4
Establishment of Federal
Relief Commission (FRC)
The central coordination office for rescue
and relief started to work at PM Secretariat
immediately after the earthquake. Federal
Relief Commission was established on 10th
October 2005 to mobilize all resources and
coordinate activities. Soon after the rescue
and relief of the affected areas and its
inhabitants, provincial/state and district level
channels were opened to reach out to the
affected population and to facilitate flow of
relief goods and transportation of injured
and displaced people to safety.
Pakistan Earthquake 2005 — Preliminary Damage and Need Assessment by Asian Development Bank and World Bank, November
12, 2005, Islamabad
9
1.5
Combined Response by the
Government of Pakistan,
International Donors and UN
Agencies
The Government of Pakistan immediately
realized the enormity of the task and appealed
to the international community which
consequently resulted in huge inflows of
assistance within days after the earthquake.
The United Nations immediately deployed its
Disaster Assessment and Coordination (UNDAC)
team to provide technical assistance to assess
the scale of the disaster and to help manage
the international response.
The Government of Pakistan’s Federal Relief
Commission (FRC), Armed Forces,
International donors, UN agencies and local
NGOs joined hands to undertake the huge
operation for delivering emergency relief
against odds such as mountainous terrain,
distant and difficult to access communities,
changing weather conditions, resource
constraint, and overwhelming suffering of
the people. Hopes of the nation held ground
in the ability of this combined and unified
effort to respond swiftly and confidently in
overcoming the odds.
1.6
Establishment of Reconstruction
and Rehabilitation Authority
(ERRA)
On 24th October 2005, the Government of
Pakistan established Earthquake
Reconstruction and Rehabilitation Authority
(ERRA) through a notification with the
mandate to work on a comprehensive
response to devastation caused by the
earthquake.
ERRA, initially, encountered a number of
organizational and operational challenges.
While going through the establishment
process; it worked simultaneously on evolving
program strategies in consultation with a
large number of stakeholders. There were
issues of systems development, staffing,
establishing coordination mechanism and
division of responsibilities among federal,
provincial/state and district level authorities
10
in order to put the organization on the right
foundation from the onset.
1.7
ERRA/UN Early Recovery
Plan (ERP)
On 31st March 2006, the Government of
Pakistan officially ended the ‘Relief’ phase
and the Federal Relief Commission (FRC) was
subsumed into Earthquake Reconstruction
and Rehabilitation Authority (ERRA). A
Transitional Relief Cell was created within
ERRA to supervise and coordinate the residual
relief activities and also coordinate the Early
Recovery Plan (ERP) that was developed to
bridge the gap between relief and
reconstruction. The relief operation has
been termed very successful by local as well
as foreign observers. The decision to end
relief operation was taken to kick start the
task of reconstruction and to help the
affectees get back to a degree of normalcy
in their lives.
1.8
Transitional Relief Cell (TRC)
The Transition Relief Cell, as part of ERRA,
is responsible for all transition related matters
such as ensuring voluntary, safe and dignified
return of Internally Displaced People (IDPs)
to their original locations, through respective
local government / administration, providing
for the residual population which stayed in
the camps for some reason, until a final
solution is found and maintaining databank
of all relevant information regarding relief
operation to preserve institutional memory.
The Transitional Relief Cell (TRC) works in
close collaboration with the Planning Wing
and Sponsorship Cell to ensure that all residual
and transitional relief and recovery matters
are resolved and integrated with the on-going
Early Recovery Plan and long-term
reconstruction activities.
1.9
National Disaster Management
Authority
To address any such future calamity, the
need was felt to establish a forum which
could serve as a strategic and policy
coordinating body for preparedness,
mitigation, early warning, and to conduct
operations, should it be necessary. In this
backdrop, a National Disaster Management
Authority (NDMA) is being established by the
Government of Pakistan and the preparation
of legislative framework for the NDMA is at
an advanced stage. A skeletal staff has already
been positioned to coordinate the baseline
preparatory activities.
1.10 Reconstruction and Rehabilitation
Umbrella Programme
The Earthquake Reconstruction and
Rehabilitation Authority, in consultation with
donors and sponsors, and in close
collaboration with the Provincial Earthquake
(PERRA), State Reconstruction and
Rehabilitation Authority (SERRA), District
Reconstruction Units (DRUs) and line
departments, developed a comprehensive
umbrella program covering 12 major sectors.
ERRA followed an implementation approach
based on decentralization, whereby strategic
planning, coordination and facilitation is
being led by ERRA but micro planning and
implementation responsibility has been
delegated to the state/province and districts.
11
Chapter — 2
Response to the Eartquake
The Government of Pakistan had no
institutional set-up available to effectively
respond to a disaster of this magnitude. But
once it hit, the Government immediately put
in place a well-articulated relief, recovery
and reconstruction framework and divided
the response into very well defined phases.
The response continuum consisted of four
phases;
i. Immediate
• Rescue and relief operations
• Crisis management, damage
assessment/ control
•
Maintenance / restoration of
infrastructure
ii. Short-Term
• Sustaining population and displaced
persons
• Supplementing local response
capacities
• Revival - civil administration &
essential services
was started immediately. The sheer
magnitude of the disaster and absence of an
established entity to deal with such disasters
meant that the initial response was largely
reactive and in some cases incoherent.
Although government immediately mobilized
the army units, it still lacked the necessary
equipment and expertise to rescue those
people who were buried alive under the
debris of collapsed buildings. Its appeal to
international community resulted in the inflow
of humanitarian aid of food, medicine,
personnel and equipment from all around the
world. People from across the country reached
out to the affected areas in NWFP and AJK
with food supplies, water, medical assistance,
clothing, blankets and other necessities.
Significant support came from bilateral and
multilateral donors, non-governmental
organizations and the private sector
organizations.
There were three major concerns at that
point:
i.
Accessibility to people in high altitude
areas affected by the earthquake due to
lack of information and blockage of
communication and transportation
infrastructure;
ii.
Handling logistics for huge air traffic;
iii. Mid-Term
Early Recovery Operations
iv. Long-Term
2.1
Rescue and Relief Operation
As soon as the news of the earthquake broke
out, a massive rescue and relief operation
iii. Coordinating rescue and relief efforts
without losing time and scarce resources.
The Government was able to quickly address
these concerns through the following strategic
decisions which went a long way in making
13
this entire relief operation an unequivocal
success:
i.
Mobilization of large number of
helicopters from within and outside the
country to access remote areas, rescue
the injured, and fly in relief items;
ii.
An Army Logistics Cell to coordinate and
handle all incoming relief materials and
dispatch them as per articulated needs
from various areas;
iii. An Air Operations Center under GOC,
Aviation Command to manage the huge
air-traffic from within country and
abroad;
iv. Creation of a Strategic Leaders Forum,
consisting of all heads of main relief
agencies, at FRC level which met once
a week and ensured robust coordination,
and introduction of Cluster-Based
Coordination.
2.1.1 Damage Assessment
A damage assessment was conducted in
collaboration with the UN agencies to assess
future needs of the affected population, in
particular the injured, displaced and the
most vulnerable people and outline
parameters for planning sustainable
rehabilitation.
2.1.2 Relief Provided
For efficient handling of relief items and
their timely dispatch to affected areas, a
Logistics base was initially established at
Islamabad. It was connected to nine strategic
hubs, one in each affected district. These
district hubs were then linked to nodes
established at central points in each
geographically contiguous region. Relief
provided by FRC with assistance from foreign
governments, INGOs, NGOs, individuals and
corporate sponsors can be summarized as in
the following table:
Table: 2.2
Joint Relief Delivered to the Affected Population
October 2005 – March 2006
Relief Goods and Services Provided
Temporary Shelters to Families
Tents
Blankets / Quilts
Ration( in tons)
Medicines (in tons)
Field Hospitals Established
Field /Mobile Medical Teams
Sorties Flown
Source: Internal Sources of ERRA
2.1.3 Challenges
Following challenges were faced during the
rescue and relief phase.
i.
The only existing organizations at the
time were Federal Emergency Relief Cell
of Cabinet Division, Provincial Emergency
Relief Cells at provincial levels and Civil
Defense Organizations at district level.
However, their resources and
infrastructure was too inadequate to
meet the challenge. That necessitated
establishment of a functional disaster
management organization to assume
responsibility for the delivery of rescue
and relief immediately;
ii.
The area affected by the earthquake
was vast with dispersed inhabitations
and difficult mountainous terrain made
logistics an absolute nightmare;
Table: 2.1
Damages Caused by 8 October 2005
Earthquake in Pakistan
Deaths
Injured
Families affected
Population affected
Area affected
Educational institutions
destroyed
Health units destroyed
Houses destroyed
Roads damaged
Services such as Telecommunication,
Power, Water and Sanitation
73,338
128, 304
500,000
3.5 Million
30,000 Sq km
6,298
796
600,000
6,440 km
50-70%
Source: ERRA/UN Early Recovery Plan, May 2006
(Updated by ERRA in September 2006)
14
Quantity
385,000
951,790
6,361,090
256,376
3053.76
65
86
30,334
iii. The initial damage assessment was not
accurate and therefore the relief work
Box - 1
NAQSHA BIBI – THE MIRACLE WOMAN
Naqsha Bibi survived for 64 days under the rubble which was nothing short of a miracle. Over 200
people died in the Kamser refugee camp, 6 km North West of Muzaffarabad, due to the 8 October devastating
trembler.
The locals were digging in the rubble at the camp on 10 December
to recover corrugated iron sheets and belongings when they saw a body
in a cavity. They poked the body with a stick and saw slight movement
and realized that this person may be alive. People tried to give her water
and food but she could not swallow anything, on Monday morning 11
December 2005 a German doctor who was vaccinating people in a nearby
village was informed and he immediately advised to take her to the hospital.
Then she was taken to the Intensive care unit setup by Pakistan Islamic
Medical Association Muzaffarabad. Later she was evacuated by helicopter
to Pakistan Institute of Medical Sciences, Islamabad. She was severely malnourished, dehydrated and had
suffered from muscle waste and joint stiffness. She was provided with nutrition supplement and vitamins
through vitamins drips. Major test confirmed that her kidney, liver and spleen were functioning normally.
She responded to treatment after three weeks of intensive therapy and started gaining weight.
Case Study by ERRA Team
continued to expand as new information
came in from inaccessible areas;
iv. The available human resources were
inadequate. Most of the relief workers
and volunteers did not have the type of
skills and experience required for
delivery of relief operation;
v.
All major roads were blocked and there
was traffic congestion restricting smooth
flow of relief goods and material;
vi. Pakistan had not faced such a calamity
before and therefore did not have the
experience of handling a large air traffic
and relief goods that started to come in.
As Chaklala Airbase got utilized to its
capacity, Peshawar and Lahore bases
were opened to handle the incoming
traffic;
vii. Due to colossal loss of lives and damage
to government buildings, the civil administration became dysfunctional;
viii. Initially, there was a lack of inter agency
coordination until the Government decided to create the Federal Relief Com-
2
mission and made it responsible for coordination of the relief efforts and interact with all the national and international
partners;
ix Relief personnel and general public had
no experience or expertise to handle the
injured, especially with back-bone injuries and handicapped in such a large
number;
ix. Domestic experience to address the problems of Internally Displace People (IDPs)
on international standards and provide
protection to the most vulnerable.
Box - 2
Main Challenge
In the early stage of natural disaster,
especially one of massive scale, accurate
information is always scarce and yet
assumptions and action needed to be made.
Indeed, as it turned out, following this
earthquake it took over two weeks for even
basic information to flow from the outer
reaches of the affected area to allow
authorities to appreciate the full scale of
the disaster2 .
Ref. Presentation in George C Marshall Centre, UN OCHA Desk Officer on UN perspective
15
2.1.4 Lessons Learnt
x.
Some of the key lessons learned during the
relief and rescue phase can be summarized
as follows:
i.
There should be identification of fault
lines through scientific study and mapping
of the area across Pakistan;
ii.
There should be permanent sustainable
institutional arrangements to respond to
natural disasters, particularly in view of
the fact that a large area of northern
Pakistan and the State of Azad Jammu
and Kashmir AJK) lies on the fault line;
iii. There should be a proper mechanism to
collect information to provide baseline
for damage assessment;
iv. The national capacity for rescue and
relief operation, including provision of
necessary equipment and expertise,
handling of logistics, and coordination
should be built on priority basis;
v.
A coordination mechanism to avoid
duplicity of efforts and to ensure optimal
use and management of resources must
be established on ground immediately
prior to any disaster;
vi. The experience and expertise of the nonprofit civil society organizations, which
is an asset, should be utilized in such
situations;
vii. There should be a national Information,
Communication and Education (ICE)
policy to create awareness on how to
react to such emergencies among general
public as well as specific vulnerable
groups;
viii. Future construction in areas on the fault
line should be strictly guided by the
government authorities for seismically
safe construction techniques compliance
in line with the building codes;
ix. There should be an adequate system for
personal protection and social security
of vulnerable groups.
16
The host government/agency must adopt
a culture of openness in its dealing with
the relief and donor agencies and make
utmost efforts to keep them on board in
all critical decisions related to
coordination and coverage.
The success of relief operations can be gauged
from the fact that within six months, the
Government was able to create enabling
environment for the affected population to
return to normalcy and start participating in
the reconstruction and rehabilitation of their
houses and other essential social and physical
infrastructure once again.
2.2
UN/ERRA Early Recovery Plan
Bridging the Gap between Relief
and Reconstruction
2.2.1 Purpose:
The purpose of the Early Recovery Plan (ERP)
is to bridge and coordinate the transition
from relief to reconstruction. The Early
Recovery Plan (ERP) covers activities over a
12 month period starting from May 2006
onwards – a critical year to lay the groundwork
for sustainable long term reconstruction.
2.2.2 Main Areas of Activities:
Early recovery Plan encompasses a targeted
range of concrete activities that will draw
on the strengths and resilience of local
communities. The eight sectors covered are:
1. Education
2. Health
3. Livelihoods
4. Water and Sanitation
5. Housing, Shelter and Camp
Management
6. Needs of Vulnerable Groups
7. Governance and Disaster Risk
Reduction
Box - 3
Four Critical Decision of the Government Of Pakistan
that Made a Difference
•
Creation of Federal Relief Commission (FRC) and Earthquake Reconstruction and
Rehabilitation Authority (ERRA)
•
Monetization of area through payments of Cash Grants to affected families
•
Closing of Relief operations by 31 March 2006
•
CGI sheets distribution as mid-term housing solution.
8. Common Services and Coordination
Three cross-cutting themes are mainstreamed
in all interventions: social and economic
rights, gender equality, and environmental
sustainability.
2.2.3 Coordination and Delivery
Mechanism:3
All programs are being coordinated by ERRA
and implemented by relevant departments
and provincial and local authorities with the
help of implementing partners/NGOs. The
focus is on Operationalising capacity building
of these government authorities with the
principle that technical assistance is the last
resort.
3
4
Efforts are being made to ensure that
programs are implemented in a fully
transparent and accountable manner.
Communities have been provided with a
meaningful voice in the planning and
implementation processes, and the most
vulnerable groups of people are being
targeted. The residual relief assistance has
been planned in a way to foster economic
recovery.
2.2.4 Key Principles of the Early Recovery
Plan:4
1. Alignment and ownership;
2. Focus on Operationalising capacity
building;
3. Objective targeting; to give priority
to the neediest;
4. Shape residual relief to foster
economic recovery;
5. Select implementing Partners with
good track record;
6. Observe of equity between NWFP and
AJK.
2.2.5 Summary of Financial Status
The ERRA/UN worked out the financial cost
of the Early Recovery Plan according to which
an amount of US$266 million is required. Out
of this US$171 million are currently available.
The funding gap has to be filled by mobilizing
additional resources or making adjustments
in the plan. A summary of financial status
of Early Recovery Plan is given below:
ERRA/UN Early Recovery Plan (ERP), May 2006
Adapted from ERRA-UN Early Recovery Plan, May 2006
17
Table: 2.3
Funding Overview of the Early Recovery Plan
(as of 31 August 2006) *
Sector
Total Cost Avaiable Funds to be Precentage
(S)
Funds ($) Identified
Funded
($)
Education
37,774,180
29,766,763
Health
36,967,496
22,161,683
Livelihoods 96,955,073
61,590,917
Water and
Sanitation
25,264,600
13,976,610
Housing
Shelter Camp
Management 32,015,023
16,865,184
Support to
10,081,079
4,634,450
Vulnerable
Group
Governance 8,328,604
6,237,132
Common
Services and
Coordination 18,808,564
16,339,560
Total
266,194,619 171,572,299
*Preliminary, based on near-complete data
Source: ERRA/UN
79%
60%
64%
14,341,859
3,954,667
13,629,595
48%
18%
22%
38%
11%
14%
11,287,990
55%
9,179,472
66%
36%
15,229,838
5,349,052
53%
46%
2,932,238
2,838,575
17%
61%
9%
28%
2,091,472
75%
3,469,857
56%
42%
2,469,004
94,604,742
87%
64%
11,803,560
62,149,823
72%
36%
63%
23%
Implementing Partners from among the nonprofit organizations have been issued NOCs
by ERRA on the basis of mutually agreed
criteria.
In order to ensure that Early Recovery Plan
(ERP) takes off in the right direction, following
policy decisions have been taken by ERRA:
18
Imple- Delivery
mentation Rate
Rate
8,007,417
14,805,813
35,364,156
2.2.6 Implementation of Early Recovery
Plan:
During May - August 2006, ERRA and UN
coordinated to develop an Action Plan
involving numerous stakeholders to prepare
and submit project proposals for each selected
sector. The approved projects are now being
processed for funding and implementation
in accordance with the Government of
Pakistan planning process.
i.
Expenditure
(S)
Health and Education sectors should be
fully supported. Most of the projects
have received funding pledges; further
resources will be mobilized if required
to realize the plan.
ii.
Teachers’ training should be given
priority. Its curriculum should include
Emergency Education.
iii. All fully funded projects in Livelihoods
and other sectors that have started
should continue. Partly funded projects
that may or may not have started, should
be kept rolling and further funding should
be mobilized.
iv.
Capacity building of organizations and
individuals should be given priority,
including Camp Management Training,
particularly in AJK.
v.
Technical/skills training in construction
trades should be continued with the same
momentum.
vi. People in camps should be encouraged
to vacate camps and start building their
homes. They should be provided with
corrugated sheets for the roof, tent, one
month’s ration, and transportation to
facilitate their return.
vii. There should be a clear differentiation
between development and reconstruction
projects to ensure that the regular
development projects are not included
in the reconstruction and rehabilitation
program.
viii. Slope stabilization and debris removal
should be done to facilitate
reconstruction of both private housing
and public buildings as well as to protect
environmental pollution.
2.2.7 Challenges of Early Recovery
The main challenges faced during the planning
and implementation of Early Recovery Plan:
i.
Initially, there was some duplicity of
interface between the Federal Relief
Commission (FRC) and Earthquake
Authority (ERRA) which resulted in
absence of a strategic framework on
which the ERP could be based;
ii.
There was a shift from cluster approach
coordinated by UNOCHA to project
approach coordinated by UNDP that
caused coordination problem among
stakeholders for the implementation of
ERP;
iii. The pledges made in the Donors’
Conference in November 2005 did not
materialize through the Government of
Pakistan as envisaged earlier; rather
funding was being channeled directly
through implementing NGOs working in
various sectors with communities on the
ground.
2.2.8 Lessons Learnt
Most of the challenges have been addressed,
and the lessons learnt in the process are:
i.
In order to achieve better planning,
implementation and sustained
coordination, linkages with the district,
provincial and state governments have
to be strengthened;
ii. Due to lack of capacity of the district,
provincial and state governments, target
based delivery of the ERP should be done;
at the same time local absorption
capacity should be enhanced;
iii. The relief organizations should not be
encouraged to get involved in the
reconstruction activities because
different set of expertise required in the
two situations;
iv. The cost of overheads should be
minimized by curtailing any possible
duplicity of efforts and uneven dispersion
of resources in terms of gender, spatial,
and regional division;
v. There needs to be a reasonable
timeframe for discontinuation of relief
activities
Box - 4
Now You See It, Now You Don’t
“As we started the Emergency Relief, I wanted to see the tents all over; now at the
Early Recovery phase, I want to see them all gone.”
Quote from the Deputy Chairman, ERRA
19
vi. People should be given reasonable
incentives and assistance for early return
to normal life cycle, such as cash, in
affected areas through housing and
livelihood grants
2.3
Earthquake Reconstruction
and Rehabilitation Authority
(ERRA) - Towards Sustainable
Development -
2.3.1 Establishment
Rehabilitation Authority (ERRA) has been
established under a Notification, dated 24th
October 2005 of Prime Minister’s Secretariat
as an autonomous organization in view of the
expediency of the situation, to provide for
post-disaster damage assessment,
reconstruction and rehabilitation of the areas
affected by the earthquake of 8th October
2005.
The Headquarter of Earthquake Reconstruction and Rehabilitation Authority (ERRA)
is located within the Prime Minister’s
Secretariat. The Authority is to undertake
its operations in the earthquake affected
areas in Pakistan and Azad Jammu and
Kashmir.
2.3.2 Main Functions:
The main functions of the Authority are to
survey, for assessing the damages and needs,
formulation of comprehensive umbrella
development programs to provide for planned
settlements, housing, government building
and offices utilities and services,
infrastructure, health, and education facility
besides preparation of resettlement plans.
2.3.3 Institutional Framework
The Authority has a two tiered institutional
system: ERRA Council and ERRA Board.
ERRA Council
For general directions, all matters of policy
and administration of ERRA and its affairs
vest in a Council which exercises all powers,
performs all the functions and does all acts
20
and things which are exercised, performed
or done by Authority.
The Council is the apex body and consists of
the following members:i. Prime Minister of Pakistan
ii. Prime Minister of Azad Jammu and
Kashmir
iii. Chief Minister of NWFP
iv. Minister for Kashmir Affairs and
Northern Areas
v. Minister for Political Affairs
vi. Advisor to the Prime Minister for
Finance
vii. Chairman, ERRA
viii. Deputy Chairman, Planning
Commission
ix. Deputy Chairman, ERRA
ERRA Board
The ERRA Board is responsible for the
implementation of the approved programs,
projects, and policy decisions of the Council
as well as for the day to day operational
matters and has such administrative and
financial powers as may be delegated to it
by the Council.
The Board comprises the following:
i. Chairman ERRA
Chairman
ii. Deputy Chairman ERRA Member
iii. DG (Procurement, Legal and
Coordination)
Member
iv. DG (Planning)
Member
v. DG (M&E)
Member
vi. DG (Finance)
Member
vii. Additional Finance
Member
Secretary (Exp)
viii.Additional Secretary,
Member
Planning Division
ix. Representative of GHQ, Member
x. Chief Secretary, NWFP Member
xi. Chief Secretary, AJK
Member
xii. Two professional from Member(s)
Civil Society nominated
by the Federal Government
xiii.One professional from
Member
by the government of NWFP
xiv. One professional from
Member
by the Government of AJK
2.3.4 Organizational Structure
Rehabilitation Authority (ERRA) has a three
tiered devolved organizational structure,
whereby it plays the central role in the
process of policy making, strategic planning
and program development in consultation
with Provincial Earthquake Reconstruction
and Rehabilitation Authority (PERRA) and
State Earthquake Reconstruction and
Rehabilitation Authority (SERRA) at provincial
and state levels and District Reconstruction
Units (DRUs) at the district level. The affiliates
are empowered to implement the
reconstruction and rehabilitation programme
with continued support from the Authority.
2.3.5 Reconstruction and Rehabilitation
Umbrella Programme
The Authority has developed an allencompassing umbrella program for the
reconstruction and rehabilitation of affected
areas. The twelve sectoral programs are:
1. Housing
2. Livelihoods
3. Education
4. Health
5. Water and Sanitation
6. Governance
7. Power
8. Transportation/Roads
9. Communication
10. Social Protection
11. Environment
12. Industry and Tourism
2.3.6 ERRA Team
Rehabilitation Authority (ERRA) has a multidisciplinary team that is responsible to deliver
Figure 1
Functional Organizational Structure - ERRA
ERRA
(C DWP)
PROV STEERING
COMMITTEE
•
•
•
•
•
PLAN
APPROVE
COORDINATE
FACILITATE
M &E
FINANCIAL
ALLOCATION
PROV STEERING
COMMITTEE
PERRA-NWFP
(PDWP)
Engineering
Brigade
SERRA-AJ&K
(PDWP)
DRAC
DRU
Engineering
Battalion
DRAC
DRU
PROJECT
FORMULATION
Mansehra, Shangla, Kohistan, Abbottabad, Battagram
Muzaffarabad, Bagh, Neelum, Rawlakot
21
Box-5
The Spring of Motivation
Muhammad Moeen Raza took the challenge to participate in a competition for creating
a Logo for ERRA. The young professional, a Master degree holder in Information
Technology (IT) put his mind and soul in this work and produced three designs within
24 hours, one of which was selected. Below is an expression of his dedication and
patriotism in his own words.
“The creation of the Logo was based on the motivation to contribute my energies and
transform my abilities to the well-being of earthquake affected people. The
representation
of theme is:
Name of ERRA:
The House represents Reconstruction
The Vain represents Rehabilitation
The Outer Circle represents the Authority
Earthquake and Reconstruction Scenario
Nine bricks – each represents one devastated district
Star on vain – five stars on one side of vain represent four provinces of Pakistan
and the
State of AJK
Triangle represents provision of shelter to affectees
Crescent with Moon represent our national identity”
This invaluable contribution of Muhammad Moeen Raza makes ERRA proud of Pakistani
youth.
its mandate within a specified period of three
years which may be extended if considered
expedient by the Government of Pakistan.
Core Groups in each program sectors have
been formed. The mechanism is geared
through holding:
2.3.7 Coordination Mechanism
The coordination among stakeholders is being
encouraged for information sharing,
synergizing the field activities and problem
resolution. For this purpose, General and
•
•
•
•
5
22
Monthly NGO Conferences
Regular Meetings with G-7+5
Core Group and General Group Meetings
Regular Programme Steering Committee
Meetings at provincial and state level;
G-7+ Consists of the WB, ABD, DFID, Japan, USAID, EU, UNDP and other donors.
•
•
Regular DRAC Meetings at the district
level;
Core Groups and General Groups
meetings for each sector at the DRU
level;
2.3.8 Operational Coherence and
Transparency
Operational coherence and transparent
decision-making, and implementation are the
most challenging aspects in any undertaking
of this size. Following steps have been taken
by ERRA in this regard:
•
•
6
Operational Manual: A comprehensive
Operational Manual, prepared in
consultation with Planning Division and
provincial/state governments, has been
notified covering all aspects of planning,
coordination, PC-I preparation, financial
management and monitoring and
evaluation.
EMEF: In order to ensure transparency
a 5 layered Monitoring and Evaluation
Framework is being devised and put into
practice by ERRA. It consists of both
internal and external monitoring, third
party revalidation as well as financial
and performance audit.6
2.3.9 Steps for Fast Track Implementation:
•
Enhanced Approval Limits: Scheme
approval limits for the district (DRAC),
Province/state and ERRA Board have
been enhanced by the government for
fast track processing and approval of
schemes. DRAC can now accord approval
for schemes up to Rs. 100 million,
province/state up to Rs. 250 million and
ERRA Board up to Rs. 500 million.
•
Packaging of Schemes: Smaller schemes
are being packaged into one scheme,
under one PC-I to attract better capacity
contractors and also for the ease of
planning, coordination and monitoring.
•
Capacity Building: Technical assistance,
training and provision of equipment and
vehicles for capacity building of
implementing agencies is an integral part
of all strategies.
More details are provided in Chapter -7 on Monitoring and Evaluation.
23
24
Special
Projects
Housing
and town
planning
Sectors
Planning
Economic
Sector
R&D
Social
Protection
ERRA Dev.
Fund
AJ&K
Field Teams
ERRA Dev.
Budget
ERRA
Payments
and
Accounts
Finance
Evaluation
Section
M&E
Coordinating
Cell
NWFP
Field Teams
Special
Projects
Monitoring
&
Evaluation
Council
&
Board
Procurement
Procurement
Legal
Internal
Audit
MIS
General
Administration
Budget
and
Cash
Public
Relatiions
and Media
Donor/EAD
Co-ord
Cell
Executive
Office
Figure 2
Social
Physical
Infrastructure Infrastructure
& Services
TRC
Deputy
Chairman
ERRA
Office of
Chairman
Chairman
ERRA
EARTHQUAKE RECONSTRUCTION AND REHABILITATION AUTHORITY
FUNCTIONAL ORGANOGRAM
Chapter – 3
Challenges
3.1
Introduction
Starting a new regular development project
or programme is always challenging. But
starting a programme for reconstruction and
rehabilitation in a devastated area spread
over 30,000 sq. km of rugged terrain, involving
12 sectors with thousands of destroyed
facilities, and interfacing with two
governments and nine district administrations
poses unprecedented challenges. Purpose
specific institutions need to be created and
staffed, rules and procedures need to be
formulated, mandates and responsibilities
need to be defined, needs and interventions
need to be identified, resources need to be
arranged, plans need to be finalized and all
this needs to be done in a time compressed
environment. ERRA had to grapple with this
and much more since its inception.
also defined it as a part of Prime Minister’s
Secretariat. It created an administrative
anomaly because an Authority is supposed to
be an autonomous institution with its own
governing rules and procedures. In its existing
shape, ERRA had to follow the existing
Government procedures which required every
decision to be referred to the PM Secretariat.
It took considerable time to overcome the
limitations imposed by this anomaly through
various direction issued by ERRA Council and
PM Secretariat on the instance of ERRA. A
permanent solution to these limitations would
come about when ERRA Ordinance/Act is
formally notified which is in final stage of
processing.
And more than that, the most challenging
aspect of reconstruction is managing
expectations – both of the affected
population, general public and decisionmakers. Many people question the speed with
which the reconstruction is taking place
without really appreciating the amount of
invisible preparatory work that goes into
reconstruction and rehabilitation of thousands
of schools & colleges, health facilities, public
buildings, roads, power, communication etc.
And if these destroyed facilities are to be
built back better, then it means fresh seismic
surveys, revision of building codes and
standard designs, skill development and
capacity building, mobilization of appropriate
human and financial resources etc.
3.3
Accommodation and Logistics:
ERRA was raised from the scratch and one
immediate challenge for getting started was
to create appropriate working conditions. To
start with, there was no suitable office space,
no staff, no equipment and no vehicles for
mobility. ERRA started its operations from a
few rooms in PM Secretariat and, once
additional staff started joining, it required
additional accommodation outside PM
Secretariat. Since no large enough building
could be identified, ERRA for a considerable
time operated from three different locations
with Planning and M&E Wings located outside
PM Secretariat. It was only in May 2006 that
ERRA secured additional space in PM
secretariat to house all the wings under one
roof. But even this space is not enough and
ERRA continues to operate under severe space
constraints.
Institutional Challenges
3.4
3.2
Status:
Given the urgency, ERRA was hurriedly raised
through a notification of the Prime Minister’s
Secretariat. While declaring it an Authority,
with all the attendant powers, the notification
Linkages with Government
Departments:
ERRA is a new organization dealing with a
hitherto uncharted territory and undefined
linkages and relationships with other
government organizations at the central and
provincial/state level. It was a classic case
25
of “New Kid on the Block”, being viewed
with a mixture of suspicion, envy, and
contempt. It, therefore, had to act fast to
address others’ institutional turf concerns
and establish trust based operational linkages.
It was not an easy task for an organization
short on experience, staffing and time and
long on its mandate and responsibility.
3.5
Capacity Constraints:
The sheer volume of work that needed to be
carried out in a short span of time needed
much better capacity than that was available
at the district and provincial/state level
among existing government departments.
Every planning and implementation agency
is expected to deliver ten to fifty times more
than what they delivered in a normal year.
This lack of capacity is not restricted to
government departments only; it extends to
other related sectors like civil works
contractors, skilled labour, transportation of
materials in large quantities, existing road
network etc.
3.6
Keeping the Focus:
ERRA’s main mandate is reconstruction and
rehabilitation but it ultimately ended up
handling the residual relief and early recovery
programmes as well primarily because all
three are interlinked and there is no existing
institution to look after the residual relief
and early recovery programmes. This
combined responsibility has increased the
work load of ERRA manifold but creation of
TRC and attendant work processes has
enabled ERRA to maintain its primary focus
on the reconstruction efforts.
Planning & Implementation Challenges
3.7
Strategy Formulation:
ERRA’s mandate covers reconstruction and
rehabilitation in 12 various sectors. The first
step in that direction was formulation of
comprehensive sector strategies that in turn
hinged upon quick mobilization of a
competent team of sector specialists and
technical experts. It took considerable time
and help from other development partners
26
to assemble the required staff and ERRA had
to abandon the initial lofty aim of coming
out with one umbrella programme document.
ERRA prioritized certain sectors like Rural
Housing, livelihoods, health, Education and
Water Supply & Sanitation and formulated
their strategies first. Strategies for the
remaining sectors took longer than initially
anticipated and last package was finally
approved in September 2006.
3.8
Accurate Damage Assessment:
The initial damage assessment was carried
out by World Bank and ADB during the relief
phase when the local institutions were
themselves in complete disarray. The initial
verifications by ERRA pointed to considerable
variations between WB/ADB assessments and
actual situation. One reason for these
variations was the tendency of local level
departments to overstate damages for
inclusion of new schemes motivated by
administrative or political interests. This
situation demanded a more through
assessment of damages under each sector
and hence consumed more time for
finalization of some of the sectoral strategies
than originally anticipated.
3.9
Compliance with Donors’
Procedures:
Most of the major donors have provided
project-specific funding rather than an
umbrella budgetary support to the
government. Project specific funding meant
adoption of donor specified implementation
procedures in respect of planning, reporting,
approvals and procurements. The sheer
number of donors, each with its own specific
procedures and guidelines, has put an
enormous burden on the already
overstretched implementing agencies’
capacity.
3.10
Harmonization of Activities with
Partner Institutions:
A number of partners are directly executing
reconstruction projects in the affected area.
Making sure that all are following same
principles and implementation guidelines
proved to be a big challenge. The different
work cultures and operating procedures of
international NGOs, national NGOs and
government departments created ample
chances of confusion, friction and progress
lags and ERRA had to constantly remain
vigilant.
3.11 Transparency versus Speed:
Speed is the essence given the sheer size of
ERRA’s undertaking. However, ERRA and GoP
are also committed to ensuring due process
and transparency in the use of reconstruction
and rehabilitation funds. The existing
government rules in many cases are quite
time consuming and cumbersome whereas
early completion of reconstruction demands
quick mobilization of manpower and
resources. The rules meant for regular
development work are hardly suited for an
emergency response situation. So ERRA had
to constantly walk the tight rope of quick
response and at the same time maintain
transparency and due process. This in many
cases slowed down the progress in number
of sectors.
3.12 Coordination and Feedback:
ERRA is dealing with around 80 international
and national NGOs, 8 UN agencies, 5
multilaterals, 15 bilateral and scores of
philanthropists, charities and government
departments, both at the planning as well as
implementation levels. This requires a very
robust coordination and feedback system at
all levels. It took considerable time and effort
to fine tune the system and it is constantly
evolving with new challenges and feedback
received from various partners. The sheer
number of partners invariably throws up issues
of duplications, contradictions and overlaps
and needs skillful interventions to achieve
desired corrections or to resolve differences.
Other Challenges
3.13 Changing Local Dynamics:
The massive earthquake not only took
thousands of lives and damaged infrastructure
but also completely disrupted the existing
social and economic equilibrium. This was
followed by huge influx of external relief
agencies and massive inflow of cash in the
shape of compensations. The onset of
reconstruction has created its own demands
in terms of manpower, materials and logistics.
The combination of all these have put lot of
inflationary pressure on the local economy
and distorted the local supply and demand
situation in terms of food, accommodation,
and wages.
3.14 Information Dissemination:
The primary clientele of ERRA are the affected
population living in scattered hamlets and
villages in a very rugged terrain with limited
communication means. It required a very
carefully crafted information dissemination
system to provide real time information to
the people about ERRA programmes and
policies. Though some sector specific
information campaigns were launched but a
comprehensive and effective media campaign
could not be devised. There was over
emphasis on electronic media which has
limited outreach due to very nature of the
terrain.
3.15 Urban Development:
ERRA was confronted with substantial
destruction in four urban centers. The
situation was further exacerbated by the fact
that two of these towns, Muzaffarabad and
Balakot were on active fault lines. Since ERRA
had taken upon itself to use this opportunity
to build back these urban centers into better
organized modern urban centers, it required
major redesigning and shifting of population,
In case of Balakot, the entire town is planned
to be shifted to a new site. This meant
overcoming peoples’ emotional, filial and
economic attachments to their existing places
of abode
3.16 Conclusion
The above narrated multifarious challenges
have in no way weakened ERRA’s resolve to
turn this adversity into an opportunity. ERRA
remains determined to build back better safe
houses, schools, hospitals and roads in the
affected areas and help the affected people
to rebuild their lives quickly and with dignity.
27
Chapter – 4
Converting Adversity into Opportunity
Whereas the earthquake catastrophe posed
a number of serious challenges to both the
Government and the people of Pakistan; it
also brought out the best in them. Building
on the excellent work done during relief and
recovery phase, Earthquake Reconstruction
and Rehabilitation Authority (ERRA) undertook
to convert this adversity into an opportunity
for the affected populace and for the whole
nation. ERRA’s commitment to “Build Back
Better” is not confined to brick and mortar
alone; it extends to inducing positive change
in the way the society operates. Some of the
major changes already in offing are:
Targeting the poor and vulnerable
4.1
Quality and Safety:
The horrific carnage in the affected areas
and its projection on national and
international media has made the people
aware of the need for properly designed,
safe, and quality construction. Many people
and government/civic agencies have for the
first time realized that Pakistan is in a
seismically active zone with the possibility
of more earthquakes in future. With this
realization, there is a visible interest in the
affected as well as non-affected areas in
learning about the building codes and safe
construction techniques. People have become
more conscious about the quality aspects of
construction as well.
4.2
Rationalized Reconstruction
All the affected towns were allowed to grow
in a haphazard manner over the years without
any regard to the need for smooth traffic
flows, evacuation and shelter needs during
emergencies, and capacity of the civic
amenities to sustain the growing population.
Reconstruction of these towns have provided
an opportunity to rationalize the land use,
communication and transport systems, and
civic amenities, both for the present and
foreseeable future growth of these towns.
ERRA’s Urban Planning strategy, Urban and
Rural Housing Sector programs, Health and
Education strategies, and Water Supply and
Sanitation strategies have made a conscious
effort to consider the present and future
needs of the population in respective areas.
4.3
Strategic Integration and Upgradation
ERRA is also introducing strategic integration
and up-gradation of health and education
facilities with a view to provide better
equipped, better staffed, and better
performing facilities to the people; that also
meet their present and foreseeable future
needs. This process is expected to become
a model for these two sectors in the rest of
the country.
4.3.1 Health Sector
There existed a number of small facilities
like Mother-Child Care Centers, First-Aid Posts
and Civil Dispensaries which were poorly
serviced and managed with little or no linkage
to the four-tiered national health system.
These units were not geared to provide good
quality of health services to the rural
community. All these small facilities are now
being integrated into Basic Health Units and
Rural Health Centers with a view to offer an
entire range of health services under one
roof. This will enable the Health Departments
to manage and monitor the performance of
these facilities better and also to reduce the
overhead costs of the departments. In order
to provide access to remote areas, a referral
system is being devised that will connect the
community to these health facilities at Tehsil
and District levels. These improvements in
infrastructure are being further backed up
through investments in latest equipment,
training and management.
29
4.3.2 Education Sector
As far as the education sector is concerned,
most of the primary schools in rural areas
consisted of one or two rooms without any
provision for a play ground, library, staff
room, drinking water, and the lavatories.
Rampant Teachers’ absenteeism, poor
learning and class room environment, nonavailability of books and learning materials,
and overall poor management of schools were
also matters of serious concern. ERRA While
reconstructing the educational facilities with
better designs and as per actual needs. ERRA
is also working closely with the two
governments to improve the learning
environment, teacher availability, and overall
management through community
participation.
4.3.3 Design Improvements:
To address the special needs of disabled, the
health and education facilities include
features like access ramps (for wheelchairs),
and specially designed bathrooms. ERRA is
working with the concerned authorities to
make such features a standard part of all
health and education facilities.
4.4
Equity and Care for Vulnerable
Groups
Another important strategic action to convert
this adversity into opportunity is ensuring
across the board equity in terms of gender,
region and administrative level. Targeted
interventions have been designed for the
poor and vulnerable after comprehensive
surveys in the affected areas. There is a built
in mechanism in interventions such as cash
grants, mircro-credit scheme and skills
training programs for spreading the benefits
across the target population and area. This
comprehensive database on the poor and
vulnerable is being linked with National social
welfare programmes and safety nets for
ensuring sustainable support to these people.
4.5
Creating Human Resource Capital
One of the positive consequences of the
earthquake disaster is that it turned the
30
attention of the authorities to the dire need
of developing sufficient skilled manpower to
undertake the huge reconstruction activities
at individual as well as institutional level.
Mass-scale skills development programmes
were launched with the help of NGOs and
the Army immediately after the earthquake
and so far 70,000 individuals have been
trained for construction skills in masonry,
carpentry, plumbing and electrician work.
These skilled workers are now able to build
their own houses and as well as earn incomes
by offering their services in the job market.
4.6
Change in Public Behavior
Change in public behavior is most visible in
three areas:
4.6.1 Banking Services
With the introduction of obligatory use of
banking system for cash grants transactions
for reasons of transparency, people have
started to learn the usefulness of banking
services. There is not a single affected family
in the nine districts which does not have a
bank account. This kind of behavioral change
will have a lasting impact on the socioeconomic culture in the rural society.
4.6.2 Formal Documentation
People have also started to recognize the
importance of documentation to protect their
land and property ownership rights. A small
proportion of population, especially female
population and minors, were previously
registered in National Database or had
Computerized National Identity Cards. ERRA,
with the assistance from NADRA, encouraged
and facilitated people to get their CNIC.
4.6.3 Quality Consciousness and
Ownership:
People are now becoming conscious of the
quality of construction and of services in
social sector and will demand better quality
from the institutions being reconstructed in
the social sector because of their enhanced
knowledge and experience during the
earthquake reconstruction and rehabilitation
process.
4.7
Decentralized Grievance Redressal
System
Among other systems and mechanisms
introduced by ERRA, effectiveness of the
decentralized grievance and redressal system
cannot be over-emphasized. Systems have
been devised to redress the grievances related
to cash grants and housing grants as well as
ownership disputes at the local levels through
traditional Jirga system or local government
institutions like Union Council. This has
revived the importance of these local conflict
resolution mechanisms and, at the same time,
saved people from lengthy litigations.
4.8
Telecom Revolution
Relaxation of regulatory regime, especially
in AJK, in the immediate aftermath of
earthquake and establishment of PCOs by
various telecom companies to provide a
communication link between the affected
populace and their relatives elsewhere, has
resulted in a virtual telecom revolution in
the affected area. A number of telecom
companies are now operating in the area and
most people are now linked to rest of the
country through fixed line and cell phones.
31
Chapter – 5
Umbrella Programme
5.1
Introduction
Rehabilitation Authority, in close consultation
with donors and sponsors and in collaboration
with Provincial Earthquake Reconstruction
and Rehabilitation Authority (PERRA), State
(SERRA) and line departments developed a
comprehensive umbrella programme covering
12 major sectors as follows:
5.1.1 Programme Sectors
1
Housing
2.
Livelihoods
3.
Education
4.
Health
5.
Water and Sanitation
6.
Governance
7.
Power
8.
Transportation
9.
Communication
11. Environment
12. Tourism and Industry
5.1.2 Programme Approach
ERRA follows an implementation approach
based on decentralization, whereby strategic
planning policy making and coordination for
recovery and reconstruction will be led by
ERRA but micro-planning, management, and
on-ground implementation is delegated to
the respective provincial/state and district
levels. For this purpose Provincial Earthquake
(PERRA), State Reconstruction and
Rehabilitation Authority (SERRA) at provincial
7
and state levels and District Reconstruction
Units (DRUs) at district level have been formed
5.1.3 Focus on Cross Cutting Issues
The Authority has a special focus on cross
cutting issues such as creating gender equity
across all programmes and levels, giving
priority to human resource development, use
environmentally safe practices and conducting
proactive mass awareness and information
campaign for the affected population and
general public with regard to ERRA policies
and programmes.
5.2 Housing:
5.2.1 Damage caused by the earthquake
Private housing suffered the most extensive
damage among all sectors affected by the
October 2005 earthquake. Approximately
600,000 rural and 30,000 urban housing units
were affected. According to the World Bank
and Asian Development Bank’s preliminary
estimates7 private housing reconstruction is
likely to represent 44 percent of the total
reconstruction costs. 82 percent of this
amount is for reconstruction; 15 percent for
rehabilitation (restoration and strengthening);
and, 3 percent for technical assistance and
capacity building.
The results of a comprehensive housing sector
damage assessment survey, covering 27,000
kilometers, are given below:
5.2.2 Policies and strategies formulated
for reconstruction and rehabilitation
The underlying objective of the housing
reconstruction program is to ensure that an
estimated 630,000 houses that were either
Asian Development Bank/ World Bank (ADB/WB), ‘Pakistan 2005 Earthquake: Preliminary Damage and Needs Assessment
35
Table 5.1
Total Destroyed and Damaged Housing Units - AJK
District
Destroyed
Damaged
Negligible Damage
Muzaffarabad
121,995(89%)
12,499 (9%)
2,891 (2%)
Bagh
79,514(96%)
2,716(3%)
627(1%)
Poonch
39,190(83%)
7,209(15%)
1,084(2%)
Sub Total
240,699
22,424
District
Destroyed
Damaged
Shangla
14,141(54%)
8,514(33%)
Total Destroyed and Damaged Housing Units - NWFP
Negligible Damage
3,277 (13%)
Mansehra
106,523(70%)
32,702(22%)
11,933(8%)
Kohistan
6,323(46%)
4,850(35%)
2,646(19%)
Abbottabad
19,704(31%)
17,982(28%)
22,585(35%)
Battagram
49,345(85%)
7,035(12%)
1,777(3%)
Sub-Total
196,036
71,083
42,218
TOTAL8
436,735 (76%)
93,507(16%)
46,820(8%)
Ensuring ‘owner driven’ housing
reconstruction - homeowners in charge of
rebuilding their own homes
Providing an enabling environment to builders
and homeowners, through:
•
•
prior training, information, education
and communication campaigns;
rebuilding with familiar methods and
easily accessible materials – ensuring
sustainability and cultural preferences
in design;
destroyed or damaged by the earthquake,
are rebuilt using earthquake resistant building
techniques through grant assistance from the
Government of Pakistan to eligible
households.
ERRA, in its formation of the reconstruction
and rehabilitation program for housing, has
identified several key principles that underpin
the way the program is implemented. These
principles, as well as the policies that they
are manifest in, are listed below:
8
36
Yet to complete damage assessment for 7,594 in AJK and 1,423 in NWFP; owner/tenants of 17,000 housing units unable
to be located – damage assessment surveys of these units have been completed.
•
•
•
•
providing technical assistance during
construction;
promoting the use of own labor, salvaged
material, and additional resources such
as locally available skilled labor, etc.;
ensuring a stable and efficient supplychain of building materials; and,
facilitating the opening of bank accounts.
Assisted and inspected reconstruction and
retrofitting
•
•
•
•
Mobilizing a large number of Assistance
and Inspection (AI) Teams, for house-tohouse assessment;
Disbursing cash grants in tranchÈs linked
to stages of construction and adoption
of seismically acceptable standards;
TranchÈ disbursement through banks
after due validation of the
progress/quality’
Resources for forming the AI teams and
their management structures to be
procured through partnership
arrangements.
Ensuring seismic safety
ERRA has established a review and approval
mechanism for construction guidelines;
structural designs; and, training curriculum
through the development of reference
‘minimal structural design standards’ that
meet internationally accepted standards for
low cost earthquake resistant housing. The
adoption of these standards ensures that
houses are ‘built back better’ and are resistant
to any future seismic activity.
Construction Material Hubs (HUBS)
ERRA has to establish private sector
construction material hubs at strategic
locations in the earthquake affected area.
These HUBS are designed to assist in:
•
•
reducing costs associated with logistics;
improving inventory turn-over rates;
•
•
reducing the need to store inventory onsite; and,
suppressing price volatilities and market
distortion.
Ensuring judicious use of grants –
preventing, reducing and managing conflicts
and grievances through preventing
socioeconomic distortion, inequalities and
disparities:
•
•
•
•
Damage assessment criteria to remain
consistent across all affected districts.
Eligibility criteria to include land
title/ownership criteria (cases involving
leased land, include agreements/
authorization from owners to rebuild the
house).
MOUs to be signed with beneficiaries to
ensure judicious and best possible use
of grants, and application of seismicresistant structural standards.
Developing and installing a participatory
and inclusive grievance redressal system.
Policy approach specific to town planning
programme
•
ERRA’s policy is to develop a master plan
for each urban center that was affected
by the earthquake – namely,
Muzaffarabad, Bagh, Rawalakot and
Balakot, in consultation with public and
local civic authorities, has been, or will
be formed to guide future redevelopment
in these cities.
37
•
These master plans include detailed
studies of the affected towns and identify
opportunities to incorporate long term
sustainable measures with a view to
develop better living cities.
•
These studies have been conducted to
identify each urban center’s comparative
strengths and address their respective
weaknesses; be they physical,
demographic, economic or
environmental.
In the case of Balakot, the entire town will
be relocated to Bakriyal. The decision to
relocate the town was taken after due
deliberation based on the probable future
seismic activity in the area and the Hazard
Maps developed for the town. ERRA has
endeavored to ensure the least possible
relocation for the affected population.
However, in the case of Balakot safety of our
future generations necessitated relocation.
5.2.3 Progress of reconstruction and
rehabilitation:
There has been significant progress in
reconstruction and rehabilitation of the
housing sector.
The infrastructure required to successfully
‘build back better’ the 630,000 housing units
that were damaged by the earthquake, has
been substantially developed. This
development has involved providing 84,000
people with training relevant to the housing
reconstruction and rehabilitation programme;
the establishment of twelve Housing
Reconstruction Centers; and, the creation of
65 operational Construction Material Hubs.
The effectiveness of the housing
reconstruction strategy is evidenced by the
fact that the assessment phase has been
completed, and that 93 percent of MoUs have
been signed.
The disbursement of cash grants to eligible
parties is obviously one of the most important
indicators of ERRA’s performance in the
implementation of the housing reconstruction
and rehabilitation programme. In this regard,
422,777 beneficiaries have received Rs. 29.82
billion.
25 percent of households affected by the
earthquake have started reconstruction. Of
this number, 70 percent of reconstruction
complies with ERRA’s earthquake resistant
standards. In an attempt to fast-track
reconstruction activity, ERRA has formed and
mobilized 600 Progress Monitoring Teams
that tour affected villages and provide
technical expertise. In an attempt to improve
the compliance rate, ERRA has further
extended its existing ‘menu’ of compliant
designs to include a wide variety of
reconstruction options.
Out of the four urban centers planned for
redevelopment, master plans for two cities
have been finalized, while master plans for
the remaining two cities are currently being
finalized.
38
5.3 Livelihoods
The damage caused to the livelihoods of the
affected population is hard to measure. Unlike
other key sectors discussed in this chapter,
livelihood is not easily quantifiable in numeric
terms. However, the affect the earthquake
had on employment is one way to
approximately gauge the deterioration in
people’s livelihoods as a result of the
earthquake. In this regard, according to the
ABD/WB preliminary needs assessment
estimate9 approximately 324,000 people lost
their jobs or primary means of income as a
result of the earthquake. This number
represents 29 percent of the employed
population of the affected districts. The
report predicted that the largest job losses
were in services, primary industry, small
businesses, and construction.
The purpose of the Livelihoods Programme
is to rehabilitate the livelihoods of the
affected population in rural and urban areas
through a revitalized and strengthened
livelihood support system incorporating an
inclusive community based approach.
Some of the strategic objectives of the
program are as follows:
•
•
•
9
restore the livelihoods of the affected
population to at least ‘pre October the
8th’ level;
effectively coordinate the livelihood
rehabilitation activities in the earthquake
affected areas, preventing duplication
of activities and ensuring equitable
coverage by implementing agencies;
assist community based organizations
(CBOs) and committees in planning,
implementing, monitoring, and
evaluating community livelihood
rehabilitation plans; and,
•
restore and enhance the capacity of line
departments in areas that relate to
livelihood of the affected population.
Cash Grant Strategy
The Cash Grants Programme is being
implemented in order to assist the most
vulnerable groups in the affected population.
Each eligible family is provided with a
Livelihood Cash Grant of Rs. 3,000 per month
for a six month period. Only the most
vulnerable families are eligible for further
grants after this period.
The Livelihood Cash Grant Programme is
funded by the World Bank Early Recovery
Credit (ERC). The total cost of the programme
is estimated to be US $85 million for a target
population of around 250,000 households,
with a 13 percent overhead cost for
implementation and monitoring.
Research and development investment
ERRA believes that if a sustained increase in
the livelihoods of the affected population is
to be achieved, funds must be invested in
the affected communities in order to augment
the research and development capacities of
provincial and/or district governments. It is
hoped that this will lead to the introduction
of new crops, improved herd quality,
consequently, enhancing income for the
affected communities.
Rehabilitation of primary industry, small
business, and employment in the affected
areas
The programme includes rehabilitation of
livestock production; fruit and vegetable
production; the replacement/repair of
damaged traditional irrigation systems;
restoration of small access-roads;
establishment/rehabilitation of emergency
employment centers; and, the provision of
micro-finance facilities.
Asian Development Bank/World Bank (ADB/WB), “Pakistan 2005 Earthquake: Preliminary Damage and Needs Assessment,”
15 November 2005, pp. 2-3
39
Establish institutional framework for
effective coordination of activities
Livelihood Coordination Units (LCUs) and
Livelihood Working Committees (LWCs) are
being established in ERRA, PERRA, SERRA and
each DRU and shall be the leading force in
the implementation of the Livelihoods Sector
Strategy.
Rehabilitation of relevant line departments
The capacity of line departments to deal
with livelihood related matters is in the
process of being rehabilitated, ensuring the
effective delivery of livelihood related
government services.
rehabilitation
266,000 families have been identified and
registered as eligible recipients of the
Livelihood Cash Grant Programme –
registration for the programme has been
completed in all districts. The payment of
funds to these registered eligible recipients
has begun. To date, Rs. 2.108 billion has
been paid to the bank accounts of
beneficiaries of the programme.
Marking the beginning of the micro-financing
programme, Khushali Bank has allocated Rs.
3 billion for micro-financing in the affected
area. The provision of this micro-credit began
in August of 2006. The programme is
extremely accessible to the poor and highly
subsidized.
A comprehensive US $51.86 million ERRA
Livelihoods Sector Strategy has been approved
by the ERRA board. The strategy covers all
aspects of livelihoods in the affected areas.
ERRA’s coordinating role in the
implementation of these projects, be they
government or NGO initiatives, is helping to
ensure that wastage of effort and scarce
resources is minimized.
5.4 Education
5.4.1 Damage caused by the earthquake10
The damage assessment information included
in this chapter has been taken from Asian
Development Bank/ World Bank (ADB/WB),
‘Pakistan 2005 Earthquake: Preliminary
Damage and Needs Assessment’ report. As
this report was a preliminary assessment,
some of the figures have since been reviewed.
The total number of destroyed and damaged
facilities has since been revised to 6,298.
The earthquake devastated Pakistan’s
education system in the affected areas in a
number of ways. Most obvious was the
destruction of a significant part of the physical
infrastructure which previously delivered
educational services – 67 percent of
educational institutions in AJ&K and the
NWFP were either destroyed or partially
damaged.
10
40
The damage assessment information included in this chapter has been taken from Asian Development Bank/ World Bank
(ADB/WB), ‘Pakistan 2005 Earthquake: Preliminary Damage and Needs Assessment’ report. As this report was a preliminary
assessment, some of the figures have since been reviewed. The total number of destroyed and damaged facilities has since
been revised to 6,298.
Figure - 3
Overview of Damages in Education Sector - NWFP
Figure - 4
Overview of Damages in Education Sector - AJK
Similarly, the education sector’s cadre of
teachers and administrative staff in the
affected areas were substantially reduced
by the earthquake. 853 teachers and staff in
NWFP and AJK lost their lives in the
earthquake.
One of the biggest challenges faced by the
Education Sector Reconstruction and
Rehabilitation Programme is rebuilding of
community confidence. Given that 18,000
students died as a result of the earthquake,
with the vast majority dying while in
educational institution buildings, it is not
surprising that a large number of parents
have been reluctant to send their children
back to surviving education buildings.
The nature of educational services that must
be provided has also changed as result of the
earthquake. On a physical level, the number
of disabled students has increased. In order
to ensure that these students have access to
education they are entitled to, handicappedaccessible school designs. The psychological
and social needs of the student population
41
Table 5.211
Cost of Damages (Rs in million)
District
No. Damaged
Cost
NWFP
Abbottabad
521
3336
Battagram
519
1910
Kohistan
358
1184
Mansehra
1157
5682
Shangla
210
976
University
1
2000
TOTAL
2766
15088
Grand Total = 32,715 (US$ 545,25 Million)
District
No. Damaged
Cost
AJK
MZD & Neelim
Bagh
Poonch
University
1630
920
540
1
7478
4672
2777
2700
TOTAL
3091
17627
Source: ADB/WB Preliminary Damage and Needs Assesment.
in the affected area also need to be
addressed. Teachers, therefore, need to be
trained for school based psycho-social support
and counseling.
In order to improve the quality of education
in the affected areas, ERRA has formulated
a multidimensional approach to the
reconstruction and rehabilitation process.
The reconstruction and rehabilitation of
fully and partially damaged schools,
colleges, and universities.
The underlying objective of ERRA’s
reconstruction and rehabilitation strategy
for the education sector is to ‘build back
better’. This will not only require the physical
rebuilding and rehabilitation of better schools,
but also a complete improvement in the way
ERRA’s first priority is to reconstruct and
rehabilitate the physical infrastructure which
is essential for effective delivery educational
– school, college, and university buildings.
Reconstructed institutions will be given a
complete package of furniture, educational
aids and materials, laboratory facilities and
workshop equipment on a one time basis.
Upgrading the education sector’s
infrastructure
education is provided in the affected areas.
It is ERRA’s aim in this programme to restore
equitable access to higher quality institutions.
11
42
Subsequent to the successful reconstruction
and rehabilitation of these institutions, and
depending on the availability of additional
funding, new primary schools will be
established and schools catering for older
age groups will be upgraded. This process
will also involve the retrofitting of existing
educational institutions.
In implementing this policy, ERRA aims to
address one of the biggest problems faced
The damage assessment information included in this table has been taken from Asian Development Bank/ World Bank
(ADB/WB), ‘Pakistan 2005 Earthquake: Preliminary Damage and Needs Assessment’ report. As this report was a preliminary
assessment, some of the figures have since been reviewed.
Table 5.3
Number of Academic Institutions Planned for Reconstruction (2006-2007)
Category
No.
Pledged by sponsors
Pledged by
donors
GOP
Primary
1201
374
272
555
Middle
214
73
89
52
Secondary
126
68
-
58
Higher secondary
18
8
1
9
Colleges
13
11
-
2
Universities
2
1
-
1
TOTAL
1574
535
362
677
IMPLEMENTATION
1574
535
298
741
Source: Internal Sources of ERRA.
by the education sector – gender inequality.
In order to improve the dismal state of female
education in the affected area; educational
institutions for females will be reconstructed
and rehabilitated on a priority basis.
Promoting the community’s sense of
ownership in the education sector
Through a consultative and inclusive approach
to the rebuilding and rehabilitation process,
ERRA aims to improve the community’s sense
of ownership in the education sector. The
benefit gained from this sense of ownership
is that educational institutions will be
increasingly supported by the communities
that they are a part of. This support will
become more important as the reconstruction
and rehabilitation programme is completed
and ERRA’s role diminishes. This approach
also aims to improve enrolment levels – the
community is more likely to participate in
something that they have helped to create.
Rationalizing the provision of education
services
Minimizing waste of scarce resources is the
main priority of ERRA. In order to achieve
this, ERRA has incorporated a need-based
assessment programme into its rebuilding
and rehabilitation programme for the
education sector. Dysfunctional schools will
not be rebuilt and schools that previously
underprovided for the community’s needs
are being upgraded.
rehabilitation
Planning for the implementation phase of
the education reconstruction and
rehabilitation programme is in its final phase.
Currently, 535 facilities have Sponsors and
854 have Donors. These facilities will be
constructed over the next three years.
Out of 6,298 destroyed facilities, 25 percent
(1,574) are planned for reconstruction during
2006-7, at a cost of Rs. 12 billion. Funding
for the first year target has been secured
through government and donors/sponsors.
115 PC-Is have been prepared and approved
so far covering 600 schools worth Rs. 4 billion.
The remaining PC-Is are at various stages of
43
processing and approval and shall be finalized
by the middle of October. Construction on
projects that have already been approved is
going to start in October of 2006.
5.5 Health
5.5.1 Damage caused by earthquake
Out of 796 health facilities in the eight
affected districts of NWFP and AJK,
approximately 48.7 percent were completely
retrofitting as a result of the earthquake.
The remaining 26.5 percent of the health
facilities, which have no obvious damage,
also need to be assessed for safety and
earthquake resilience.
The demands and expectations of the
community from the health sector have grown
as a result of the government’s policy to turn
this adversity into opportunity and provide
better facilities and services to the people
in EQ affected areas. The health sector is
Figure - 5
Damage Caused to Health Sector
destroyed during the earthquake. 24.8 percent
of the health facilities in NWFP and AJK need
not only vital for the immediate relief of the
earthquake affected population; it is also an
essential part of the long-term recovery and
rehabilitation process for these people.
The ultimate goal of the reconstruction and
rehabilitation programme for the health
sector is to provide the affected population
with a revitalized healthcare system that is
financially viable. It should ensure the
provision of integrated and essential package
of health services, which is accessible,
effective, efficient and responsive to the
44
needs of the affected population. The overall
outcome of this goal will be a healthier
population.
Emergency preparedness and disaster
management at the federal, provincial and
district level
Rationalized reconstruction and
rehabilitation of health facilities
Inclusion of disaster response training and
formation of emergency plans ensures that
the health sector’s ability to deal with
emergencies is greatly increased at federal,
provincial and district levels.
In order to ensure optimum resource
utilization, health facilities that are
impractical and dysfunctional will not be
rebuilt. Instead, the resources have been,
and will continue to be, allocated to effective
facilities that best cater to the community’s
needs. This will allow for a higher level of
quality control in the provision of health
services. One key outcome of this process is
that all health facilities will be made
seismically safe.
Rehabilitation programme and improving
access for the disabled
ERRA’s rehabilitation and reconstruction
programme for the health sector includes
measures that facilitate the needs of the
earthquake affected population. These
measures include better access for the
disabled in hospital designs and retraining of
medical staff in areas fields to earthquake
related injuries.
rehabilitation
Out of the 305 health facilities that ERRA
plans to rebuild or to rehabilitate, pledges
for 221 facilities have been confirmed. This
represents 72% coverage. In addition, 19
‘tentative pledges’ are in the process of being
confirmed. In AJK, all facilities (99 percent)
have been assured funding; however, only
58 percent of health facilities in NWFP have
definite funding. Construction plans for first
year target facilities are at an advanced
stage. Work has already started on some of
the sponsored facilities.
Current status of health sector coverage is
as following:
•
All District Headquarter Hospitals and
Tehsil Headquarter Hospitals are
currently providing healthcare facilities.
•
At present 54 prefabricated health
facilities are functional: 36 in AJK and
18 in NWFP.
•
Similarly 53 transitional health facilities
(Primary Health Care services) operated
by INGO/NGO are functional.
•
In addition, 45 prefabricated health
facilities are in the process of being
established.
•
District health authorities and hospitals
are fully prepared to address large-scale
emergencies/out-breaks.
•
Disease Early Warning System (DEWS) is
fully operational.
Strengthening health system management
ERRA, as a part of the reconstruction and
rehabilitation programme for the health
sector, is taking the opportunity to review
and subsequently strengthen the way the
health system is managed.
45
Table 5.4
Progress of Reconstruction in Health Sector
District
DHQ/Hopital
R
Manshra
Battagram
Shangla
Kohistan
Abbottabad
Muzaffarabad
Poonch
Bagh
Total
3
1
1
0
2
4
1
2
14
P
3
1
1
0
1
4
1
2
13
THQ
RHC
R
P
R
3
2
2
0
0
1
2
2
12
2
1
1
0
0
1
2
2
9
10
4
3
6
4
7
2
9
45
BHU
P
10
4
1
0
4
7
2
9
37
R
27
27
16
16
17
62
30
28
223
Others
P
27
13
2
0
14
62
29
28
175
R
P
1
1
1
1
1
2
2
2
11
0
1
0
0
0
1
2
2
6
•
An effective communication and
coordination mechanism has been
established, consisting of a Core Advisory
Group and General Advisory Group. Both
groups are operational.
5.6 Water and Sanitation WATSAN
The Water and Sanitation sector suffered
heavy losses as a consequence earthquake.
The drinking water infrastructure that existed
in the affected areas was largely devastated.
Intake structures, treatment plants, storage
reservoirs, supply mains and distribution
networks were damaged or destroyed. Wells
and springs were also severely affected by
the earthquake – well and spring yields were
substantially reduced, while, in some areas,
natural water sources dried up or were buried.
Similarly, the infrastructure that allowed
sanitation and waste removal services was
also affected. Sewage networks, drainage
and solid waste removal systems were crippled
in the affected area.
Equally devastating, was the damage the
earthquake caused to water and sanitation
at the household and individual building level.
The pluming, including latrines, of individual
households and buildings in the affected areas
were particularly damaged. The accumulated
46
affect of this damage was that much of the
affected population did not have access to
two very fundamental and necessary human
needs - water and sanitation.
Some key facts highlighting the magnitude
of the damage caused to the water and
sanitation sector are listed below:
•
Water supply and sanitation facilities in
420 healthcare facilities and 5,857
educational institutions were damaged
or destroyed.
•
Over 50,000 household latrines were
damaged in NWFP and AJK.
•
The drainage system was severely
affected in Muzaffarabad City, AJK.
•
Drains, street pavements, public toilets,
and solid waste management system
were affected in twelve other towns of
AJK including Bagh, Kahuta, Athmaqam,
Rawalakot, Chikar, Hattian, Garhi
Dupatta, Pattika, Abbaspur, Chinari,
Dhirkot and Hajira.
•
Solid waste management related
equipment and machinery of TMAs in
NWFP and Municipal Corporations/Town
Committees in AJK suffered losses due
to the earthquake and subsequent
excessive use in the relief efforts. These
agencies also need additional equipment
Table 5.5
Damaged Schemes
NWFP
Damaged Water Supply Schemes in NWFP
A.Abad
Battagram
Kohistan
Mensehra
Shangla
TOTAL
Gravity
137
359
123
552
397
1568
Pumping/Tube Wells
38
0
0
15
0
53
Hand Pump
105
7
0
168
1
281
Total Number of
Schemes
Number of PHED
Owned Schemes
Number of TMA
Schemes
280
366
123
735
398
1902
92
61
38
99
108
398
188
305
85
636
290
1504
Table 5.6
Damaged Water Supply Schemes in AJK
Damaged Schemes
AJK
Bagh
Muzaffarabad
Neelum
Poonch
Sudhanoti
TOTAL
Gravity
536
1163
73
178
7
1957
Pumping/Tube Wells
1
2
0
0
0
3
Hand Pump
11
0
0
3
4
18
Total Number of
Schemes
Number of PHED
Owned Schemes
Number of TMA
Schemes
548
1165
73
181
11
1978
3
7
0
0
0
10
545
1158
73
181
11
1968
to clear the backlog generated from
relief activities and to ensure solid waste
management during the reconstruction
and rehabilitation phase.
•
In NWFP, buildings of PHED, Works and
Services Department as well as TMAs
were partially damaged (except TMA
Balakot office which was totally
destroyed). Buildings of Public Health
Engineering Department of AJK Public
Works Department and AJK Local
Government Rural Development
Department were destroyed in
Muzuffarabad, Bagh and Rawalakot, and
partly damaged in other areas.
The estimated total cost for the rebuilding
and rehabilitation programme for water,
sanitation, and solid waste is US $61.23
million.
5.6.2 Policies and strategies for
effect reconstruction and
rehabilitation
The underlying objective of the water and
sanitation sector is to improve the quality of
life of people living in the earthquake affected
areas by reducing the risks posed to public
health. This objective will be achieved by
providing an equitable, adequate, safe and
accessible water and sanitation service.
Some more specific objectives of the water
and sanitation rebuilding and rehabilitation
programme are listed below:
•
•
rehabilitate and reconstruct all public
and community-owned drinking water
supply, sanitation, and solid waste
management systems;
expand, improve and upgrade the
affected water supply and sanitation
47
preparedness. This means that new standards
in building and plumbing are implemented
using earthquake resistant materials.
Rehabilitation and reconstruction of
drinking water supply systems
This component will support rehabilitation,
reconstruction, and improvements in the
drinking water supply systems of the affected
areas.
Water quality monitoring and management
•
•
systems for increased disaster
preparedness and enhanced service
delivery in line with the National Drinking
Water and Sanitation Policy, Pakistan
Poverty Reduction Strategy and United
Nations Millennium Development Goals;
restore, build and strengthen the capacity
of relevant government departments,
NGOs, CBOs, and other partners; and,
bring about behavioral changes in favor
of safe hygiene practices.
Prioritization
For effective utilization of scarce resources,
ERRA has formulated criteria for the
prioritization water supply and sanitation
schemes. These criteria will examine the
following areas:
•
•
•
•
•
•
•
population served by the scheme
extent of damages
schemes serving, inter alia, schools and
hospitals
accessibility
level of involvement of community in
implementation
degree of mechanization
availability of water source
Programme Components
Improved disaster preparedness and service
delivery
Water and sanitation facilities will be ‘built
back better’ and upgraded for disaster
48
Communities and implementing agencies are
provided with the necessary equipment and
technical expertise to monitor and manage
the quality of water supplies.
Rehabilitation and reconstruction of
sanitation systems
All public and community works related to
sanitation systems (i.e. drainage systems,
street paving and public toilet facilities) are
rebuilt or rehabilitated.
Solid waste management systems
The development of waste management
strategies and plans to improve the health
and environmental standards of the affected
communities are developed. This task involves
such programmes as the design and
development of sanitary landfill sites, and
the provision of waste disposal bins, etc.
Community mobilization and hygiene
promotion
ERRA is using this unique opportunity not
only to involve the community in the
implementation of the water and sanitation
Table:5.7
Districts Progress on Water Supply Schemes in AJK & NWFP
(As of 30 June 2006)
S.No
District
1
2
3
4
5
6
7
8
9
10
Total
A. Abad
Mansehra
Batagram
Shangla
Kohistan
Muzaffarabad
Neelum
Poonch
Sudhanoti
Bagh
Total No of Schemes Total Schemes Pledged
280
735
366
398
123
1165
73
181
11
548
3880
88
450
313
21
0
722
37
20
0
300
1951
Physical work started
Gap
(Schemes)
0
87
74
0
0
95
0
0
0
44
300
192
285
53
377
123
443
36
161
11
248
1929
programme, but also to effect a behavioral
change in matters relating to water and
sanitation. These changes aim to improve
the overall hygiene standards of the affected
communities and their health.
Bagh, were severely disrupted by the
destruction of administrative complexes. The
majority of buildings, both offices and
residences, were destroyed or damaged,
including the Civil Secretariat and Supreme
Court.
rehabilitation
The permanent reconstruction of the water
and sanitation sector began in May 2006.
Current progress is reflected in Table 5.7.
Work on the remaining schemes pledged for
the current year is likely to start in October
of 2006.
In the affected districts of NWFP, around 65
percent of district and tehsil buildings were
either destroyed or badly damaged. The
destruction in Balakot was severe, where
almost all administrative structures collapsed.
5.7 Governance
The earthquake severely damaged buildings;
equipment and logistics networks related to
public administration and governance sector
and took a heavy toll on government officials,
thus bringing the system of governance to a
standstill. Apart from loss of lives and damage
to physical infrastructure, the earthquake
destroyed official records (i.e. revenue
records, municipal records, including birth,
death, police and judicial records).
The administrative structures in the districts
of Muzaffarabad, Neelum, Rawalakot and
ERRA appreciates the fact that early
reconstruction and rehabilitation of
government offices under this sector not only
holds the key to a full scale recovery of social
and economic services delivery, but would
also facilitate the reconstruction work in
other sectors. ERRA, therefore, attaches
great importance to the swift restoration of
buildings, complexes and facilities of
provincial/state departments and district
governments.
5.7.2
Policies and strategies formulated
Reconstruction and rehabilitation of
government offices/residences
The first priority of ERRA in its programme
for the governance sector is to reconstruct
49
and rehabilitate public office/residential
buildings.
Capacity building
The capacity of government departments
was severely reduced as a consequence of
the earthquake. ERRA is in the process of
restoring this capacity through addressing
departments’ needs in the areas of logistics,
equipment and, technical assistance for
institutional building.
rehabilitation
Pre-fabricated structures are being provided
to some of the critically important offices
with the assistance of UNDP’s BEGINNER
Project.
Distribution and retail service delivery
infrastructure were the most damaged by
the earthquake, but partial restoration was
achieved quickly by the responsible agencies.
During relief phase the strategy was to provide
spare parts, equipment and manpower from
unaffected areas, and bring ‘reconstruction
teams’ to the affected areas to restore the
power installations. Most of the immediate
repairs after the earthquake were of
temporary nature. Due to severe timeconstraints, repair was done using borrowed
equipment. Therefore, urgent replacement
of borrowed store items is required and, at
the same time, temporary solutions have to
ERRA’s Governance Sector Strategy has been
completed and approved.
The process of prioritizing buildings on
specified selection criteria has been
completed, and PC-Is for all buildings targeted
for reconstruction in the first year have been
approved.
5.8 Power Sector
The power sector was severely damaged by
the earthquake. However, most of the
damaged structure was repaired on an urgent
basis. Electricity bulk supply was restored in
most of the areas to near pre-earthquake
level within days of the disaster.
Table 5.8
Damage Caused to Power Sector AJK
District in AJK
% of pre October 8th level
Muzaffarabad & surroundings
Bagh & surroundings
Rawalakot & surroundings
96
94
98
Table 5.9
District in NWFP
Damage Caused to Power Sector NWFP
% of pre October 8th level
Balakot and surroundings
Kawai onwards to Naran
Source: ADB/WB Preliminary Damage Assesment.
50
100
Work in progress
be replaced by permanent ones on a priority
basis.
5.8.2 Polices and strategies formulated
Rehabilitation of infrastructure
Funding for the power sector programme has
been made available by the Asian Development Bank (ADB) and the Japan Bank for
International Cooperation (JBIC).
5.9 Transportation
The first step for full recovery of the power
sector is to procure equipment that is most
urgently needed. These items include, inter
alia, high and low voltage lines, transformers,
grid station equipment, tools and vehicles.
Capacity building and access equity
It is estimated that 2,551 kilometers of roads
were partially or fully damaged in AJ&K,
which is 45 percent of the total road network
in the affected districts, and 3,754 kilometers
of road were damaged in the NWFP,
representing 56 percent of the total road
network in the five affected districts.
The reconstruction of power sector systems,
general electricity networks, and related
buildings has the accumulated affect of
improving the quality of service the power
sector provides to the community and to
industry.
If capacity is built, resulting enhanced
coverage and efficiency of service, more
people, from a greater variety of
socioeconomic groups, will have access to
power.
rehabilitation
Like many sectors incorporated in ERRA’s
rebuilding and rehabilitation plan, the power
sector programme is being implemented in
two phases. In the first phase, power generation capabilities in the affected areas have
been restored on priority basis. In the second
phase, permanent power generation facilities
are being rebuilt and/or rehabilitated.
The following table shows the current status
of power distribution in the affected areas.
Some reconstruction proposals have been
finalized and have subsequently been approved by PERRA and SERRA. The remaining
project proposals are ready for submission
to the relevant forums for approval. Tendering
process for the approved projects has also
started.
The earthquake caused severe damage to
the transport system in the affected areas
of AJK and the NWFP.
The National Highway System also suffered
significant damage in the Earthquake affected
areas. These main access corridors connecting
the affected population to the rest of Pakistan
– in total, 175 kilometers of national highway
- was either destroyed or severely damaged.
The poor state of roads is one of the largest
challenges facing ERRA. Many of the roads
that have been restored have only been done
temporarily, and, as a consequence, the road
network is still extremely vulnerable to
weather conditions and soil movement. The
effective operation of this network is a
prerequisite to success in the rehabilitation
and reconstruction of almost all other sectors.
The estimated total cost of reconstruction
and rehabilitation of roads and bridges is US
$466.5 million.
The underlying objective of the reconstruction
and rehabilitation program for the transport
sector is to reconstruct and rehabilitate the
road network in the affected areas in a timely,
technically sound and cost effective manner.
51
Table: 5.10
Damage to National Highways
Name of National Highway
(Section)
N-15(Basian-Balakot-MahandriNaran Section)
N-35 (Battal –Batagram-Thakot)
S-2 (Kohala-Muzaffarabad)
Jhelum-Valley Road
Total
Length ofLength of
Damaged Section (Km)
65
Extent of Damage
Completely Damaged~
50
05
55
175
Partially Damaged
Partially Damaged
Partially Damaged
Source: National Highway Authority Ministry of Communication, Govt of Pakistan.
Table: 5.11
Summary of roads/bridges damaged due to earthquake in AJK
District
M.abad
Bagh 40
Neelum
Sudhnoti
Poonch
Total
Major Road km Link Road km
58
100
40
35.5
173.5
343.5
423
70
95
608.5
Rural Roads km
Fair
Stone
Weather Sole
731
25
30
101
67
15
36
126
59
1362
150
No of Structures
Black Top
Total
122
554
11
23
257
878
67
62
208
2551
Bridges
28
20
17
4
69
Culverts
36
17
16
1
5
75
Source: Public Works Department - Local Government Departments and Rural Development, Govt of AJK.
Table: 5.12
Summary of roads/bridges damaged due to earthquake in NWFP
District
Provincial
Highways km
District Roads
Tehsil Roads
Damaged Length in km Damaged Length in km
Shingle
Blac
Top
Total
Shingle/ Blac
Kach
Top
Total
No of Structure
Bridge
Culvert
Abbotabad
-
484
236
720
229.5
109.25 338.75
44
Mansehra
-
724
516
1226
378
97.75
24
475.75
Battagram
-
130
73
203
85.42
-
85.42
-
Shangla
33
173
70
243
127.2
10.53
137
-
Kohistan
-
147
45
192
56
30
86
-
Total
33
1658
940
2598
876.12
247.53 1123.65
68
Source: Frontier Highway Authority, Works & Services Department and Local Government Department, Govt of NWFP.
52
This will ensure improved quality of access
and service delivery.
•
Some of ERRA’s more specific objectives for
the transport rebuilding and rehabilitation
program are as follows:
•
•
•
rehabilitate and reconstruct all roads
and structures damaged or destroyed by
the earthquake;
upgrade roads and associated structures
to a higher standard where the necessary
investment is economically feasible;
ensure that the road network is earthquake resistant by stabilizing the slopes
and by retrofitting and reconstructing
structures to new standards;
maximize use of local material, in the
restoration and reconstruction of roads;
and,
•
restore and strengthen the capacity of
relevant government departments, agencies, and institutions.
ERRA has made several strategic decisions to
ensure that the transport programme is
implemented in the most efficient and
effective manner.
Reconstruction and rehabilitation prioritization
Prioritization of roads for reconstruction and
rehabilitation is made on the following
criteria:
• main corridors to the affected areas
• access to population hubs
• lack of alternative routes
Synergy of program implementation
The selection and phasing of transport
projects is coordinated with ERRA’s other
reconstruction and rehabilitation programmes;
especially governance, education, health and
housing. This ensures that the required inputs
and access are available for the
implementation of other programmes. Care
for the natural habitat and environment is
an integral part of the planning and
implementation of all transport projects.
Capacity building
ERRA is committed to improving the capacity
of line departments through the provision of
technical assistance, staff, equipment and
training. This will enable them to execute
the reconstruction and rehabilitation
programme for the transport sector
effectively.
Management
Management of works under the transport
rebuilding and rehabilitation programme will
be decentralized. ERRA will be responsible
for standard-setting, resource mobilization,
and coordination and monitoring. The actual
implementation of the projects, however,
will be the responsibility of ERRA’s affiliate
organizations: PERRA/SERRA, DRUs and
concerned implementing agencies.
Table: 5.13
Annual Targets for National Highways
Targets
Year
Length of Road (km)
Reconstructed/ rehabilitated
2006-07
52
2007-08
72
2008-09
51
Source: Inernal Sources of ERRA.
53
rehabilitation
resources to replace the damaged
infrastructure.
When evaluating the progress of
reconstruction and rehabilitation of roads,
it is important to appreciate that the
programme has seen two phases. The initial
phase involved temporarily rehabilitating
dysfunctional roads, in the least possible
amount of time, in order to allow for the
huge logistical exercise at hand – the
emergency relief effort. Because many of
the roads rehabilitated in this initial phase
were done so on a temporary basis, they are
particularly prone to deterioration and
potential closure. These roads will be
permanently fixed in the second phase of
reconstruction and rehabilitation. The current
status of roads in the affected area is:
Special Communications Organization (SCO)
is the only public sector service provider in
the telecommunications sector in the State
of AJK. Most of the SCO structures in the
earthquake affected areas were either
destroyed or severely damaged. The
earthquake also claimed the lives of many
SCO employees and their families.
•
•
•
•
all main roads are open.
288 land slides activated and have been
cleared.
four bridges at Ghanol, Sanghar, Balakot
and KKH (Tata Pani) which were washed
away/damaged due to torrential
rains/flooding have been replaced.
one bridge at Balakot-Hangrai Road in
the process of being launched by the
army.
5.10 Communication
The organization suffered a loss of around
Rs. 630 Million. Being a public sector
organization, it has requested the government
to provide financial support for the restoration
of its facilities. Despite serious damages to
the telecommunications network in the
affected areas, immediate steps were taken
to restore communication network through
provision of PCOs and grant of licenses to
the cell-phone operators.
5.10.2 Polices and strategies formulated
ERRA’s main objective in the
telecommunication sector is to restore
damaged through;
•
In the telecommunication sector, the key
organizations in the earthquake affected
areas are mainly PTCL and SCO, in addition
to private sector mobile phone operators.
PTCL is the main service provider in the
earthquake affected areas of the NWFP.
According to its survey, sixteen exchanges
of PTCL were completely destroyed, 37
exchanges were partially damaged and
boundary walls worth Rs. 15.48 million were
destroyed/damaged due to the earthquake.
The total loss incurred by PTCL is
approximately Rs. 45.3 million. PTCL
management has decided to mobilize its own
54
•
focusing attention on the development
and modernization of telecommunication
facilities for a smooth, effective and
efficient functioning of the sector; and,
developing systems and infrastructure
mechanisms that allow for the highest
possible quality of maintenance and
readiness in times of emergencies.
Liberalization of telecommunication sector
in AJK
ERRA was instrumental in the liberalization
of the telecommunication sector in AJK after
the earthquake. The liberalization of this
sector allowed inflow of necessary funds and
expertise to quickly rebuild the sector in
AJK. This liberalization has benefited
consumers, and the area as a whole,
immensely.
rehabilitation
Despite serious damages to the
telecommunications network in the affected
areas, immediate steps were taken to restore
communication to ensure uninterrupted
operation of survived telecom systems. As
such, all telecommunication facilities have
been made functional.
The approval of ECNEC is anticipated to take
place before the end of September. Work
will start on this project in October of 2006
and is likely to take 36 months to complete.
The strategy for the telecommunication sector
has been finalized and approved by the ERRA
council.
As a consequence of the liberalization of the
telecommunications sector in AJK, four
private sector service providers have begun
operating in the area in addition to the
publicly owned SCO. The quality and
affordability of telecommunication services
in this area has greatly increased for the
people of AJK.
5.11 Social Protection
One of the unfortunate realities of the
earthquake is that the most vulnerable groups
of Pakistani society were, in many cases, the
worst affected. The region that was affected
by the earthquake is largely inhabited by a
people of low socioeconomic status. Before
the earthquake, these people, on average,
received a level of income lower than the
national average and received a level of
services that was below the national average.
Woman, children, the elderly, and disabled
were also particularly affected by the
earthquake. While many men of working age
were in open fields during the disaster, women
and children were, tragically, ion most cases
inside concrete structures when they
collapsed.
Although the entire population affected by
the earthquake is vulnerable, the social
protection programme focuses specifically
on the groups which are at the greatest risk.
These groups, and the impact the earthquake
has had on the people in these groups, are
discussed below:
Women’s vulnerability
Women have particularly been challenged
after the disaster since their roles have
drastically changed from caregivers and
contributors to the family income in a
conservative society to house hold heads and
thus main bread-earners for the family where
the earning male head of household has either
died or suffered from permanent physical
disabilities.
Following the earthquake, many women are
coping with psycho-social distress and
hopelessness. Women have limited access to
information and fewer opportunities to
participate in rehabilitation programs.
Weakened public health services hinder access
to reproductive healthcare. Customary
practices often deny women their right to
inheritance and limit their access to property,
to income, and to livelihood options.
Children’s vulnerability
Children, in particular those who lost one or
both parents, have been rendered equally
vulnerable by the earthquake. In general,
children from poorer households are
vulnerable to exploitation, abuse, and child
labor. Children who suffer disabilities and
loss of limbs face danger of being marginalized
and stigmatized within their immediate socialset up and in schools. They may potentially
face difficulty in attending schools due to
travel limitations or due to educational
institutions not designed for disabilityfriendly-access and lack of specialized
expertise among teachers to care for such
children.
Vulnerability of the elderly
Vulnerable elderly, especially those who have
lost family support or have suffered injuries
and disability, are amongst the worst affected
55
members of the community. Where the
elderly provide for the protection of other
dependants, they often face a double
protection dilemma. Older people are often
marginalized and frequently fail to access
humanitarian aid and basic services for
reasons of poor mobility, social ‘invisibility’
and the erroneous assumption that ‘someone’
is taking care of them already.
Vulnerability of people with disabilities
People with disabilities with ill health in the
earthquake affected areas are in many cases
unable to sustain their livelihoods and depend
on support from others; they are likely to
lack access to appropriate medical care and
rehabilitation programmes, as well as
opportunities to participate in community
life and decision making.
Poverty, landlessness and long term
displacement
Landownership and permanent displacement
are critical factors for determining
vulnerability and poverty. The residual camp
population, consisting primarily of vulnerable
groups, will experience further vulnerability
as a consequence of a dependent life in the
artificial environment of camps, apart from
normal community life.
ERRA estimates that the cost of its Programme
for Social Protection will be US $12.83 million.
The underlying objective of ERRA’s
Programme for Social Protection is to ensure
that vulnerable people in the earthquake
affected areas are provided basic social
services, livelihoods assistance, and support
for rehabilitation within a domestic and
community setting.
ERRA has formulated a three year plan of
action to achieve this goal over the short to
medium term.
56
Extension of Cash Grants for Vulnerable
Groups soon after the earthquake
ERRA initiated a cash grant program (a
component of a comprehensive livelihood
program) to provide assistance to vulnerable
households as a result of the earthquake.
This programme provides immediate cash
grants of Rs 3,000 per month for six months
to the vulnerable households that fit the
eligibility criteria.
The Social Protection Strategy includes an
extension of this cash grant (livelihood
support) for another six months to one year
so as to provide ongoing assistance to
extremely vulnerable households until they
are better able to determine their own means
of sustainable livelihoods and/or economic
recovery.
Housing
The Social Protection Strategy provides
specialized technical assistance for vulnerable
groups, especially widows, female-headed
households, and the disabled. NGOs are
engaged to rebuild the houses of vulnerable
groups as per seismic resistance specifications
set under the Housing Strategy guidelines.
This assistance is primarily available to
widows, female headed households, and the
disabled that own property. For those that
do not have any property of their own,
community-based care options (widow/orphan
homes) have been considered, and, in some
cases implemented, focusing primarily within
their own communities or home towns.
For people with disabilities, options for
barrier-free/disability friendly construction,
including guidelines and designs are available
at the Housing Reconstruction Centres (HRCs)
and the District Reconstruction Units (DRUs).
Under the ERRA Housing Policy, Partner
Organizations (Pos) are engaged in training
activities in line with the training strategy.
As a part of this activity, POs have also been
tasked for specialized support to vulnerable
headed-households and female headed
households.
Livelihoods
Health
ERRA has developed a broad-based livelihood
strategy that works upwards from a grassroots level whereby communities are
empowered to develop their own Community
Level Rehabilitation Plans through Community
Based Organizations (CBOs). The two-stage
strategy envisions effective coordination of
Early Recovery Phase Livelihood interventions
by NGOs, UN agencies, and bilateral donors.
The programme addresses the special needs
of the vulnerable population, especially
women and children who are the major clients
of the health system, and the needs of persons
with disabilities and psychological trauma.
As per the health sector program, the new
health facilities are to be built to ensure
various tiers of health access for people with
disabilities. The staff at the different level
health facilities will be provided specialized
training to care for people with disabilities.
Gender perspectives are taken into account
at the community level as well as at the
policy level. Special measures are taken to
ensure that in employment sectors such as
nursing and teaching, qualified widows receive
preferential treatment.
Under the Livelihood Support Cash Grant
Policy, ERRA will release another sum of Rs.
330,777,000 to Member, Board of Revenue,
Government of NWFP and Senior Member,
Government of AJK for disbursement as
Livelihood Cash Grants to 110,259 most
vulnerable and needy families in the districts
of Abbottabad, Batagram, Mansehra and
Muzaffarabad.
Legal and administrative support
A number of widows and orphans are feared
to be in danger of losing their rightful share
of land/property as a result of the
damaged/destroyed records and lack of access
to appropriate revenue authorities. The Social
Protection Strategy addresses this issue by
ensuring that widows and orphans are
provided legal and administrative support at
all levels to attain their rightful land
records/titles. NGOs with experience in
facilitating legal cases and providing legal
assistance have been assigned to districts to
assist widows and orphans who face legal
disputes in relation to land/property claims.
Psycho-Social Support
Natural disasters and conflicts leave survivors
with immense emotional trauma, the extent
of which depends on the severity of
experience and personal threshold. Some
people are able to overcome their emotional
distress whereas others, especially children
and women, considered to be the most
vulnerable, often tend to suffer long term
symptoms.
The Social Protection Strategy supports
provision of Women Friendly Spaces which
serve as private secured places where groups
of vulnerable women will be facilitated to
convene informal and formal meetings
supervised by NGOs’ psycho-social teams.
This will engender emotional healing through
counseling, mutual sharing, and further
leading to enhancing their resilience and
capacities to lead normal lives.
ERRA’s budget for the implementation of its
Social Protection Programme is US $25, 000,
000.
5.11.3 Progress of rebuilding and
rehabilitation
The detailed activities of Social Protection
Programme are given in the table below:
57
SOCIAL PROTECTION ACTIVITIES
Sl.
No.
Activity/Intervention
Roles & Responsibilities
Status/follow up action
1
Targeted assessment of vulnerable
groups in the EQ affected areas.
After completion of the assessment,
a centralized data base of
vulnerable Populations will be set
up at ERRA.
• ERRA to coordinate and
ensure timely completionß
ERRA to coordinate and
ensure timely completion
• To be conducted by
Population
Census
Organization
• Technical & financial support
from UNFPA
• ERRA
will
establish
centralized database of all
Vulnerable Populations
• NADRA has to provide base
line data to PCO for the
survey. NADRA has asked for
Rs. 1.25 million for provision
of requisite information.
• MIS, ERRA has retrieved data
from NADR and provide the
requisite information to PCO
by 20th September 2006.
2
Placement of Social Protection
Coordinators at SERRA,PERRA and
each DRU
• To be funded by UNDP
• UNDP in consultation with
ERRA, will recruit Social
Protection Coordinators
(preferably female) in each
DRU and PERRA & SERRA to
address specific needs
(housing assistance, legal
aid, cash grant support)
• UNDP has agreed to provide
funds and technical
assistance for recruitment
of SPCs
• ERRA has formally requested
UNDP to initiate recruitment
process
3
• Provision of special National
Identity Cards to the
Vulnerable Groups
• Legal Facilitation and
Assistance
• Hiring of legal consultant
• Hiring of Team Coordinator
for Social Protection
• ADB to provide technical and
financial support for the
interventions
• NADRA will provide Special
ID cards to each vulnerable
individual with coding of
their vulnerability status
• Towards the successful
completion
of
the
intervention, ERRA to
request the provincial/state
governments to provide free
access to education and
health care facilities to the
holders of special National
Identity Cards
• ERRA, on 8th September
2006, has requested ADB to
prepare the designs and
implementation mechanisms
for the interventions and
share them with ERRA along
with the fund allocations for
the projects, and to initiate
action to recruit and field
the team leader/legal expert
at the earliest.
• ADB’s response is awaited
4
Provision
of
adequate
housing/shelter to vulnerable
populations(widows, orphans,
elderly and disabled)
As an exception to ERRA’s ‘owner
driven strategy’, NGOs to be
involved to extend assistance in
house reconstruction to vulnerable
groups
ERRA has so far issued NOC to 3
NGOs to provide houses in districts
Muzaffarabad and Mansehra. ERRA
to involve more NGOs for similar
support.
• Community-based care
options and Institutional
arrangements like SOS
villages for orphans
• Establishment
of
District/Tehsil Level Child
Protection Committees to
monitor community based
care facilities being provided
by NGOs
• Preparation of standards,
guidelines and procedures
for case assessments,
placement recommendations,
the periodic review of
placement, and the quality
of care in institutions
• ERRA/DRUs in collaboration
with district administration
and, M/O Social Welfare and
respective Social Welfare
Departments(SWDs)
• ERRA in collaboration with
Core Group on Social
Protection
• ERRA to involve/task DRUs
to finalize composition of
child Protection Committees
in coordination with the
district administration and
SWDs. The committees will
finally be notified by ERRA
• Agreed standards, guidelines,
procedures and monitoring
mechanism will be notified
by ERRA
5
58
6
Extension of cash grant of Rs.
3,000/month for 1 to 2 years to
families supporting 1 orphan or
more
ERRA
ERRA is exploring the possibility of
securing funding and technical
assistance for the intervention
7
Provision of psycho-social support
and trauma counseling to vulnerable
groups
NGOs
Pakistan Red Crescent Society
(PRCS), with the approval of ERRA,
is already implementing a project
tilted ‘Psychosocial Support
Program’ in districts Mansehra and
Battagram.
ERRA is encouraging NGOs to extend
support in this field.
8
Extension of cash grant of Rs.
3,000/month for for 1 to 2 years to
widows and women headed
households
ERRA
ERRA is exploring the possibility of
securing funding and technical
assistance for the intervention
9
Craft development Programs/
vocational training for widows to
enable them to earn livelihood e.g.
like agriculture implements,
livestock rearing, technical skills,
etc.
ERRA, NGOs, PPAF, National College
of Arts ERRA to prepare
programs in consultation with NGOs
and other organizations like
National College of Arts
10
Microcredit schemes and interest
free programs for widows for small
scale businesses e.g. Livestock
provision, agriculture implements,
poultry, seeds and fertilizers.
• Khushali Bank,
• First Women’s Bank
ERRA is in the process of consulting
Khushali Bank regarding the
proposed intervention
11
Medical Rehabilitation of the
disabled in the earthquake affected
areas
The project comprises following
three components representing a
combination of institutional based
as well as community based
rehabilitation of the disabled:• Institutional Strengthening:
NIHd, DHQ Mansehra, DHQ
Shangla DHQ
Bagh ,
DHQ
Atthmuqan, THQ
Balakot, THQ Hattianbala
• Establishment of the
rehabilitation centers:
A b o t t a b a d
a n d
Muzzafarabad.
• Community
based
Rehabilitation:
District, Mansehra, Shangla,
Muzaffrabad, Bagh The total
cost of the project is Rs.
794.733 million
The project is sponsored by ERRA and
will be executed by NIHd through
Central Management Unit, which is
represented by ERRA
The project was considered by the
ERRA Board on 15th September
2006.The Governments of NWFP
and AJK raised certain objections
regarding scope of the project.
Chairman ERRA also desired that
the PC-I of the project may be
examined/ scrutinized by Finance
Wing ERRA. The Board approved
the project subject to resolution of
issues to the satisfaction of all
concerned.
Link elderly without caretakers to
Bait-ul Maal system for livelihood
support
ERRA
12
Director Social protection and
Director NIHd held discussions with
the concerned officials of NWFP
governments on 16th September
2006 in Peshawar and reached an
agreement with regard to the scope
of the project. The PC-I is yet to
be cleared by government of AJK
and Finance Wing, ERRA. Upon
settlement of all issues, anticipatory
approval of ECNEC will be sought.
ERRA to hold consultations with
Bait-ul-Maal to devise mechanisms
for implementation of the
intervention
59
5.12 Environment
The most visible affect the earthquake had
on the environment is the land-shearing,
liquefaction, and slides that occurred as a
consequence of the earthquake. This damage
continued after the earthquake as a result
of aftershocks, flooding and heavy rain.
322,250 acres of forested land across AJK
and the NWFP was damaged. This number
continues to grow as the damaged route
systems of forests give way to land slides.
Similarly, the earthquake destroyed water
channels; resulted in the siltation of some
rivers and streams; deteriorated forest resources; caused massive destruction to farm
land, especially terraced land situated on
steep terrain; and, destroyed many fish farms.
The earthquake affected area in NWFP and
AJK carries significant environmental
importance for the entire country. Most of
the forested area of NWFP falls in this region.
The affected areas in NWFP and AJK contains
the Kunhar, Neelum and Jehlum rivers which
are also major contributories of watersheds
for Tarbela and Mangla dams respectively.
The earthquake caused the siltation and
destruction of many of these water channels.
Both areas are known for their scenic beauty
and attract large number of local and
international tourists during the summer
season. Both areas are rich in natural
resources but also very vulnerable to
environmental degradation. The earthquake,
apart from causing huge losses to life and
property, has also resulted in considerable
damage to the already fragile bio-physical
environment, road network has been severely
damaged, whole mountains have been cleaved
apart, land-sliding has exacerbated, terraced
fields have been damaged and forested areas
have suffered enormously.
The secondary consequences of the
earthquake on the environment are, perhaps,
60
potentially more severe. The disposal of
massive amounts of debris from fallen
structures is a significant environmental
challenge that will continue to face the
affected population. ERRA has serious
concerns that if the rubble of fallen buildings
is not properly removed, pH soil levels and
underground water tables will be negatively
affected. This problem is made significantly
worse by the fact that the infrastructure that
is required to deal with the proper disposal
of waste has largely been destroyed. Without
this infrastructure, the negative affect the
earthquake has on the environment will grow
substantially.
The underpinning objective of ERRA’s
environmental programme is to protect
natural resources; to prevent environmental
degradation; to restore damage done to the
environment by the earthquake; to arrange
the safe disposal of debris; and, to establish
principles and practices for environmentally
friendly rehabilitation and reconstruction in
the earthquake affected areas with
sustainable use of resources.
ERRA’s environmental programme aims to
achieve this objective through immediate,
short to medium and long term intervention.
Under Component No. 3 of environmental
strategy viz. Socio-Economic component, a
checklist has been developed for addressing
environment as cross cutting of different
reconstruction and rehabilitation projects
and programmes. The checklist has been
included in the ERRA’s Operational Manual
for use by all stockholders.
Systems and procedures will be developed
to introduce green procurement and disposal
practices in all sectors; more specifically, in
construction, health, and energy sectors.
Disaster management through improved
natural resource management (NRM)
ERRA’s ability to successfully deal with, and
prevent future disasters will largely depend
on its ability to manage natural resources.
There is little doubt that the poor
management of natural resources in the
earthquake zone before October the 8th,
contributed to the havoc wreaked by the
earthquake. Therefore, the rehabilitation
and improvement of the environment in the
affected areas is a key strategy.
Improved NRM will be achieved through
ERRA’s reconstruction of the physical and
institutional infrastructure supporting the
environment; the rehabilitation of forest
cover; and, rehabilitation of slopes and land
slips and watersheds.
Establishment of hospital waste
management systems
Hospital waste presents an acute threat to
the environment and the health of the
affected population. The effective
management of this waste depends on the
installation of waste management system
infrastructure including incinerators, Basic
Health Units, and Rural Health Clinics.
Rubble/debris removal and management
Activities under this component of ERRA’s
environmental program are very closely linked
to the physical reconstruction phase of other
programmes. In all reconstruction projects,
the removal of debris will be included as part
of the reconstruction cost. The removal of
rubble and debris is carried out by both the
private and public sector. Based on estimated
volumes of debris, TMAs and MCs have
prepared detailed proposals and have
outsourced the bulk removal.
Environmental impact assessment
The impact of the earthquake has had on the
environment, and the likely effect on any
project, is comprehensively assessed. An
environmental survey will be conducted which
examines the state of environment in the
affected areas on year after the earthquake.
A separate Environmental Protection Cell has
been established under ERRA to assess and
redress the issues pertained to environment
and protect natural resources for further
degradation.
All reconstruction projects sponsored by ERRA
shall make provision of approximately 3% of
the total budget for IEE/EIA/EMP
requirements. Federal and provincial/state
governments will also be approached to make
this allowance standard requirement in all
development projects, especially for major
civil works.
Effecting behavioral change and heightening
the affected population’s awareness of
environmental issues through community
mobilization
Community participation is paramount to this
programme’s success. Community
mobilization in the implementation of ERRA’s
environmental strategies, through such
projects as the ‘Cash for Work’ scheme for
the removal of waste, will bring about positive
behavioral changes in people’s dealings with
the environment.
ERRA has incorporated an organic farming
program into its livelihood strategy in order
to improve the environmental friendliness of
this sector in the affected areas.
Ensuring ERRA’s projects have a minimum
impact on the environment
All reconstruction programs sponsored by
ERRA are required to make a provision of
three percent of the total cost for
IEE/EIA/EMP compliance.
Environmental guidelines in the form of a
check-list have been included in ERRA’s
operational manual. This check-list will be
utilized in the planning process of all projects.
Green procurement systems and guidelines
will be implemented.
The estimated total cost for the complete
implementation of ERRA’s environmental
program is Rs. 3.62 billion.
61
rehabilitation
• ERRA has finalized its environmental
strategy.
•
Environmental guidelines, in the form of
an ‘Environmental Checklist’, for
development projects have been included
in ERRA’s operational manual.
•
Hospital waste management guidelines
are being circulated among PERRA,
SERRA, and DRUs for strict
implementation.
•
•
ERRA, in collaboration with the Belgium
Federation, is in the process of
constructing a rubble recycling plant in
Muzaffarabad, training plant managers,
and conducting workshops on
environmentally friendly waste
management.
UNDP/UNEP has provided funds to
establish an Environment Protection Cell
in ERRA.
ERRA has approved Muzaffarabad City
Municipal Corporation’s project ‘Removal of
Debris from Earthquake affected areas of
Muzaffarabad City’. The project will be
implemented in the immediate future.
Table 5.14
City
5.13 Tourism
5.13.1 Damage caused by the
earthquake
The vast majority of hotels and other tourist
infrastructure were destroyed by the
earthquake. ERRA and the Tourism Ministry
of Pakistan are currently facing the huge
challenge of rehabilitating and reconstructing
the public and private tourist sectors.
A summery of the damage the earthquake
inflicted on hospitality is listed below:
ERRA and the Tourism Ministry of Pakistan
have yet to formulate a policy approach for
the reconstruction and rehabilitation of the
tourism sector.
rehabilitation
ERRA and the Tourism Ministry of Pakistan
have completed an extensive survey of the
tourism industry in the affected areas.
Over the next three months the two
organizations will work together to decide
the policy approach for this sector.
Damage Caused to Hotels and Tourist Lodges
No of Hotels/ Tourist
Lodges Rs
Estimated Covered Area
(Sqft)
Estimated Reconstruction
Cost @ 1600/Sqft (in Million)
19
12
25
8
2
43
4
113
74300
83500
241432
78900
8000
223000
10000
719132
118.880
133.600
386.291
126.240
12.800
356.800
16.000
1150.611
17
30
19
02
68
181
35620
263329
141934
7431
448314
1167448
56.992
421.326
227.094
11.889
717.302
1867.912
NWFP
Paras
Naran
Shogran/Kawai
Besham
Battagram
Balakot
Mansehra
Sub Total
AJK
Bagh
Muzaffarabad
Rawalakot
Neelum
Sub Total
Grand Total
62
Chapter – 6
Sponsorships12
Unprecedented Display of Cooperation
6.1
Introduction
ERRA was established by the Government
of Pakistan with the behemoth task of
rehabilitation and reconstruction of the
earthquake affected areas. At its
inception, ERRA was assured by the
government of complete support to meet
all financial and resource requirements.
With this assurance, ERRA embarked on
its long and arduous journey of
reconstruction, assisted by various friendly
governments, domestic and international
partner organizations, and most
importantly by the people of Pakistan.
As per the initial damage assessment by
the World Bank and Asian Development
Bank, it was estimated that a total amount
of US$ 3.56 billion would be required to
rebuild the shattered infrastructure and
rehabilitate the local populous. Using this
as a baseline, the international community
in the shape of various governments and
international development organizations
stepped forward and pledged assistance
for the reconstruction & rehabilitation
effort underway in the earthquake
affected areas. Contributions from these
donors, however valued and useful, are
mostly in the form of loans that are to
be repaid with interest by the people of
Pakistan.
As the initial assessments of the damage
were conducted at a very preliminary
stage, a thorough analysis later revealed
the actual cost of reconstruction to be
12
approximately US$ 1 billion more than
the initial estimate. Even though the
Government promised all out financial
support, it was imperative that this gap
should be funded through nongovernmental resources so as not to
overstrain the nation’s finances.
At this hour of need, the Pakistani nation
and the international community together
in an unprecedented display of
cooperation took over this task of bridging
the funding gap as sponsors. Organizations
and individuals, on their own initiative
approached ERRA to take up the challenge
of rebuilding damaged facilities.
Right from the initial stages of the
sponsorship campaign, ERRA through its
Donors and Sponsors Cell, has encouraged
sponsors to adopt a facility and rebuild
the required structure before handing
the facility back to the appropriate
authorities. In this process, Donors and
Sponsor Cell has worked as a conduit
between the sponsors and the affected
people.
Funds provided by sponsors are in form
of grants that are not to be repaid and
therefore are not burdensome on the
government. To date, approximately US$
0.40 billion have been pledged by our
sponsors in a variety of sectors ranging
from Health, Education, Livelihoods,
Water and Sanitation to Road Networks.
Contributed by Sponsorship Cell
65
6.2
Sponsorship Policy
ERRA’s sponsorship policy was initially
drafted in March 2006, with a view to
narrow the funding gap. Salient features
of the policy are given below:
•
Sponsors will be encouraged to direct
their funds to rebuilding public
facilities in the Education or Health
sectors and Infrastructure
Development.
•
Central conduit of coordination for
all Sponsorship related pledges will
be the Donor & Sponsorship cell at
ERRA Headquarters.
•
Location / facility will be matched
to the sponsor preference to the
extent possible.
•
6.3
Sponsors will be guided to follow the
reconstruction policies & procedures
of ERRA.
Future Vision
To close the existing funding gap, we are
now in the process of launching a
Sponsorship Out-Reach Programme.
Through this program, a large reservoir
of funding resources will be targeted and
solicited to participate in this national
66
cause of rebuilding the lives of the
affected people. This programme will
welcome international organizations that
would like to assist the Pakistani nation.
It is hoped that people in Pakistan and
around the world will open their hearts
towards this noble cause in a manner
witnessed after the earthquake. There is
still plenty of work to be done, a lot of
lives to be rehabilitated, numerous schools
and hospitals to be rebuilt and many
businesses to be revived. To build back
better, Pakistan requires more funds.
Table 6.1
Financial Commitment by Sponsors
Sector
No. of
Projects
Housing
10
7,950.0
Livelihoods
6
757.7
Education
62
12,497.3
Health
42
11,136.4
20
8,82.0
Governance
3
4,200.0
Social Protection
4
67.5
Environment
1
64.5
148
37373.4
Total:
Cost
(Rs. Million)
Sponsorship share to reconstruction = 13.9%
Chapter – 7
Monitoring and Evaluation13
Ensuring Transparency and Impact
7.1
Introduction
ERRA has set up a Monitoring and Evaluation
Wing (M&E Wing), which has developed an
M&E system to track and report progress on
the performance of ERRA programmes and
the success of the reconstruction effort. One
of its key tasks is to provide timely
assessments of progress, quality of
construction and socio-economic development
programmes, real-time feedback from the
affected population on impacts, and successes
and challenges.
7.2
Scope for M&E in the Reconstruction and Rehabilitation
Efforts
For a high performance project delivery and
in time course correction, the challenge for
ERRA is to comprehensively monitor its activities and continuously evaluate its objectives.
Establishment of a dedicated M&E Wing is
ERRA’s response to provide both a real-time
evaluation function and to assist in filling
gaps in coverage where the district–level
monitoring functions are challenging. The
functions of the ERRA M&E Wing are also to
cover work undertaken through other implementing agencies including direct donorfinanced programmes, UN system agencies,
NGOs and private institutions working in the
reconstruction areas.
The present role of the M&E Wing demands
processing significant amounts of
data/information, dealing with the
performance and compliance issues in the
areas of construction, physical infrastructure,
social impact, governance, economy, and
13
the environment. The resultant data
collection, analysis, and assessment promote
project effectiveness and ensure transparency
and accountability for the Pakistani people,
government, the international community
and other stakeholders.
7.3
The Earthquake M&E Framework
(EMEF)
The ‘Earthquake Monitoring and Evaluation
Framework’ (EMEF) was developed by ERRA
with the technical assistance of the
Department for International Development
(DFID). The framework has been presented
to and agreed upon by the G7 group of donors
supporting ERRA reconstruction efforts.
EMEF aims to provide ERRA and the
international donor community with a joint
approach to, monitoring and evaluation of
the reconstruction programme. It draws on
lessons learnt from the reconstruction process
following previous humanitarian disasters and
on successful M&E programmes implemented
in a number of contexts.
According to the framework, the M&E Wing
is responsible for designing and implementing
the central M&E system which will provide a
robust summary information on progress to
enable GoP and partners to monitor strategies
and demonstrate accountability. The aim is
to backstop and support project level
monitoring, and to provide a minimum set
of independent robust information on overall
progress and effectiveness of the
Reconstruction and Rehabilitation efforts.
Contributed by Monitoring and Evaluation Wing
67
The core principles of the framework
are:
•
Joint and harmonized M&E: providing a
robust M&E umbrella for all stakeholders
•
Results focus: Focusing on results and
impacts as well as budgets
•
Lesson learning: Providing information
for continuous lesson learning and
programme planning as well as
accountability
•
People focus: Involving all stakeholders
and including direct feedback from
beneficiaries
•
Transparency and Communication:
Demonstrating independence, and
communicating the right information to
the right people
7.4
The Outsourced Components –
Monitoring, Data Collection, and
Third Party Validation:
The M&E tasks are split into three broad
areas:
1. Coordination, quality assurance, and
analysis of M&E activities/data;
2. Regular independent data collection on
programme performance and population
outcomes (on a sample basis);
3. Third party validation (independent
evaluation)
As planned, activity (1) will be conducted by
the M&E Wing. Activities (2) and (3) will be
outsourced by ERRA to independent firm(s).
Both the monitoring, data collection and the
third party validation are to be overseen by
a joint Government – donors committee called
the M&E Advisory Committee.
Outsourced Monitoring and Data Collection:
The aim of the monitoring and data collection
is to provide independent timely assessments
of the progress and quality of programmes,
and real-time feedback from the affected
68
population on impacts and current
environment, successes and challenges. The
data collection and monitoring is conducted
by reputed (national/international) firms
covering the construction and socio-economic
development issues in the areas of ERRA
intervention.
Third Party Validation: The exercise is
expected to provide an overall assessment
of the effectiveness of ERRA and its partners
in achieving ERRA’s objectives and advancing
its mission to rehabilitate the disaster affected
areas. It is expected to present an analysis
of the external and internal-ERRA
environment for achieving the planned results,
and the strategic role and positioning of
ERRA; identify practical lessons and
recommendations to make mid-course
corrections to strategies, policies and
programmes if necessary; also identify and
document the significant lessons learnt (both
positive and negative) from initiatives that
worked well or otherwise.
7.5
Information Management and
Dissemination to Key
Stakeholders
M&E Wing has designed a central information
management and dissemination system in
addition to on-going monitoring and learning
from the implementation experiences of
individual projects and programs conducted
by the planning units through P/SERA, DRUs
and implementing agencies. The aim is to
provide an overview of progress and
challenges related to the overall
reconstruction process in order to support
planning and implementation, help set
strategic direction and provide general
information needed for public dissemination.
The information loop conceptualized is that
the monitoring and data collection teams
(outsourced component) regularly collect
household level data/information from the
sample/sentinel sites, which is stored in
data repositories maintained at the district
level. M&E Field Groups/Offices are
responsible for continuously analyzing
data/information collected from the field
for mid course correction and bringing
improvements in the local planning process
in combination with quality monitoring reports
generated by sectoral managers and other
staff of the M&E Field Groups/Offices.
Learning and experiences emerging from the
field are synthesized by the M&E Wing
Headquarters through the M&E Cell and shared
experiences with the internal and external
stakeholders. Policy recommendations put
forth by the roundtable members for strategic
improvements feeds into the formal decision
making fora of ERRA. Compliance would be
ensured through the implementing arms
(P/SERA, DRUs, implementing agencies, army
teams etc) regularly monitored through the
M&E Field Groups/Offices.
For information dissemination to the external
stakeholders, ERRA MIS Unit, and Public
Relations and Media Cell will take the lead
and disseminate key data/information to the
institutional donors of ERRA and public
through ERRA Website, and print, and
electronic media. M&E Wing will generate
monthly, quarterly, six-monthly and annual
progress reports related to overall ERRA
performance.
7.6
The Way Forward
M&E Wing is in the process of hiring staff to
strengthen M&E Field Offices based in nine
affected districts of NWFP and AJK. Similarly
an Evaluation Group is being established at
the M&E Wing Headquarters to backstop field
operations for improving implementation of
the reconstruction efforts. Key performance
indicators have been developed for ten sectors
with approved strategies to facilitate process
monitoring and output based performance
assessment. An exposure visit to the M&E
best practices in disaster/emergency scenarios
is in the offing to orient M&E Wing staff about
successful experiences of other organizations
in comparable situations.
69
Chapter 8
Financial Management14
1. The gigantic task of reconstruction and
rehabilitation in the earthquake affected
areas requires large financial resources for
which the international community has
offered generous technical assistance and
financial help. The enormity and complexity
of the reconstruction and rehabilitation effort
coupled with large financial outlays,
therefore, requires an efficient financial
management system to ensure transparent
and prudent use of financial resources.
2. Given the large size of financial resources
required for the reconstruction and
rehabilitation of the earthquake affected
areas, in a limited timeframe, it is imperative
for ERRA to find that right balance in its
financial management system which addresses
the competing needs of efficiency,
transparency and accountability on one hand
and quick disbursal on the other. The financial
management system devised by ERRA, in
close consultation with the donors and
national audit and financial institutions,
promises to achieve that balance.
3. Annual Financial requirements of ERRA
are based on the umbrella annual work plan
which spells out the key sectoral targets and
expenditures anticipated thereof. Financial
Management guidelines, notified as part of
ERRA’s Operational Manual guide the incurring
of expenditures at various levels. All
expenditures are subject to a comprehensive
audit and monitoring and evaluation
framework including internal audit, external
audit, special purpose and performance
audits, physical monitoring and evaluation
of projects and programs, impact evaluation
and third party validation, depending on the
size and nature of activity.
4.
Earthquake Reconstruction and
Rehabilitation Authority is also conscious of
14
the need for careful utilization of the
resources, particularly the external resources
i.e. grants and loans, pledged by various
multilateral and bilateral donors during the
international Donors Conference held in
Islamabad on 19 October, 2005. The loan
agreements are, therefore, signed with the
donors after proper evaluation of the credit
agreements and the funds are got released
on the basis of actual needs so that donor
funds do not keep sitting idle while the
Government may have to pay commitment
charges on un-disbursed and interest on the
disbursed portion of loans.
5. The reconstruction costs were estimated
at US$ 3.585 billion during the initial joint
damage assessment exercise by Government
of Pakistan, World Bank and Asian
Development Bank. This cost is likely to go
up substantially due to huge increase in the
number of destroyed / damaged houses from
400,000 to 600,000. The element of
rationalization of the education and health
facilities, the governance buildings and other
structures and the desire to build back better
will also add to the initially estimated cost
tags. Many sponsors, donors and
philanthropists have come forward to
reconstruct various facilities - mostly in the
health and education sectors which shall
relieve the Government of some of the
additional reconstruction costs. However,
based on the original reconstruction cost,
the budget estimates / financial requirements
of resources have been estimated as under.
Table:8.1
Budget Estimates / Resource Requirements
(Pak. Rs. in Million)
Year
Budget Estimates /
Resource Requirements
2005-2006
37,720
2006-2007
50,000
2007-2008
65,000
2008-2009
65,000
Total
217,720
Contributed by Finance Wing
71
6. Government of Pakistan has provided the
requisite funds during the fiscals 2005-2006
and 2006-2007. The un-audited Appropriation
Accounts in respect of the development
expenditure of the Authority for the fiscal
2005-2006 and the entity Statement of the
Sources and Uses of Funds for the year ending
30 June, 2006 are reproduced below for the
information and benefit of the readers. The
audit of the accounts by a team of the Auditor
General of Pakistan is currently underway
and the audited financial statements along
with the audit certificate are expected to be
ready by the end of October, 2006 when
these will be shared with the stakeholders.
Table: 8.2
Appropriation Account 2005-2006 – Grant No.127-A
Development Expenditure
(Pak. Rupees)
1
2
3
4
5
6
Original Grant
Technical Supplementary Grant
Supplementary Grant
Final Grant
Expenditure
*Surrender
1,000
37,720,000,000
37,720,001,000
36,022,932,088
1,697,068,912
*The amount was notionally surrendered vide ERRA Letter No.2-31/ERRA Fin/Budget/Vol-II/ 2005-06/49
dated 30-06-2006 because the funds which were actually available in Assignment Account of World Bank /
IDACredit Account and ADB Grant Account were not required to be physically surrendered.
Details of Head-wise Expenditure
1
2
3
4
5
Housing
Livelihood Cash Grants / Social Protection
Capacity Building
Roads Highway Transport Infrastructure
Transferred to Non-lapsable (PLD) Account
Total:
18,789,775,000
866,652,000
331,517,584
4,410,000
16,030,577,504
36,022,932,088
Details of Head-wise Expenditure
1
2
3
4
5
Housing
Livelihood Cash Grants / Social Protection
Capacity Building
Roads Highway Transport Infrastructure
Transferred to Non-lapsable (PLD) Account
Total:
18,789,775,000
866,652,000
331,517,584
4,410,000
16,030,577,504
36,022,932,088
Reconciliation
A
B
72
World Bank Releases including Forecast for the year 2006-07
ADB Releases including forecast for the year 2006-07
GoP Releases for 2005-06
Total:
Less
Balances of World Bank Account as on 30 June, 2006
Balances of ADB Account as on 30 June, 2006
Balances of GoP Account as on 30 June, 2006
Total:
Total (A-B):
12,237,467,409
17,368,129
28,489,664,543
40,744,500,081
4,707,889,045
13,678,948
4,721,567,993
36,022,932,088
Table: 8.3
Entity Statement of Sources and Uses of Funds
For the Quarter ended 30 June, 2006
Notes
Funds Receipts (ERRA Fund Account):
GOP Budget releases
Bilateral funds (details in Notes)
(Pak. Rupees in Million)
Actual Year
- To – Date
Cumulative
for Program
28,490
0
28,490
-
Multilateral Funds (details in Notes)
WB
19,564
19,564
Multilateral Funds (details in Notes)
ADB
17
17
Total Financing
48,071
48,071
Uses of Funds (Expenditures)
Livelihood Capacity Building
WB
1
103
103
Livelihood Support Cash Grants
WB
867
867
Livelihood Support Bereavement
Cash Grants
Livelihood Support - Vulnerable incl. Handicaps
Micro Finance Loans / Grants
Community Public Works Schemes
2. Education
Pr-Primary & Primary Education - Recons./Rehabilitation
Secondary Education – Recons./Rehabilitation
College/University (Tertiary) - Recons./Rehabilitation
3. Health
Primary & Secondary Health Care - Recons./Rehabilitation
Hospitals/Health Clinics - Recons./Rehabilitation
Medical Products, Appliances and Equipment
4. Housing
Housing Finance Grants (Retroactive)
WB
2
2,239
2,239
Housing Finance Grants
WB
6,447
6,447
Housing Finance Grant
GOP
12,343
12,343
Community Development Schemes
Capacity Building – Housing Program
WB
33
33
Capacity Building - Housing Program
5.Public Infrastructure
GOP
61
61
Roads and related Transport Infrastructure
GOP
4
4
Electricity
Government Buildings
6. General Public Services
Program Management – ERRA
GOP
51
51
Program Management – ERRA
ADB
4
4
Program Management – PERRA/SERRA
WB
3
59
59
Program Management – District Reconstruction Units
WB
4
21
21
7. Quick Disbursement Component
Total Eligibility Allocation
Imports (Retroactive)
WB
2
2,540
2,540
Imports WB
2
2,547
2,547
Total Uses of Funds (Expenditure)
27,319
27,319
Sources Less Uses of Funds (Net Change in Funds)
20,752
20,752
Opening Balance
0
0
Net Funds Available
20,752
20,752
Notes:
(1) An amount of Rs.24,671,684 is lying with Member-II, BoR, NWFP, Senior Member, BOR, AJ&K and concerned
Component Managers at District level at the end of financial year.
(2) Funds were credited to Account No. 1 (Non-Food) of Government of Pakistan and not to ERRA Account
(3) An amount of Rs.17,623,476 is available with the DG, PERRA & DG, SERRA as year end balances in their accounts.
(4) An amount of Rs.13,157,955 is available with the DRUs in NWFP & AJK as year end balances in their accounts.
73
Table: 8.4
Program Components & Activities
Cumulative for the year
Planned
(A) Social Protection (per district)
Capacity Building (Livelihood)
Livelihood Support Cash Grants
Livelihood Support Bereavement Cash Grants
Livelihood Support - Vulnerable incl. Handicaps
Micro Finance Loans/Grants
Community Public Works Schemes
(B) Education
*WB
WB
0
2,250
Actual Variance
103
867
(103)
1,383
Life of Program
Actual
Variance
103
867
(103)
1,383
Pre-Primary & Primary Education - Recons./Rehabilitation
Secondary Education - Recons./Rehabilitation
College/University (Tertiary) - Recons./Rehabilitation
Medical Products, Appliances & Equipment
(C) Health
Primary/Secondary Health Care Recons./Rehabilitation
Hospitals/Health Clinics Recons./Rehabilitation
Medical Products, Appliances & Equipment
(D) Housing
WB
6,447
6,447
GOP
12,343
12,343
Total:
25,468
18,790
6,678
18,790
6,678
Community Development schemes
WB
33
33
GOP
61
61
Total:
0
94
(94)
94
(94)
(E) Public Infrastructure
Roads and related Transport Infrastructure
GoP
0
4
(4)
4
(4)
Electricity Supplies
Government Buildings Recons./Rehabilitation
(F) General Public Services
Program Management - ERRA
GOP
51
51
Program Management-ERRA
ADB
4
4
Total:
0
55
(55)
55
(55)
Program Mngt. - Reconstruction Companies (PERRA)
i) PERRA HQ:
WB
32
32
ii) DRU Abbottabad
WB
2
2
iii) DRU Mansehra
WB
2
2
iv) DRU Battagram
WB
2
2
v) Shangla
WB
2
2
vi) Kohistan
WB
2
2
Total:
**
0
42
(42)
42
(42)
Program Management-District Reconstruction Units (SERRA)
i) SERRA HQ.
WB
27
27
ii) DRUs Muzaffarabad.
WB
4
4
iii) DRUs Bagh
WB
3
3
vi) DRUs Rawalakot
WB
3
3
Total of SERRA:
***
0
38
(38)
38
(38)
Education, Health and other sectors including
Capacity Building and Consultancy services: (Lump Figures)
10,000
233
9,767
233
9,767
TOTAL:
37,718
19,992
17,726
19,992
17,726
*An amount of Rs.24,671,684 is lying with Member-II, BoR, NWFP, Senior Member, BOR, AJ&K and component managers
at the end of financial year.
**An amount of Rs.20,572,081 is available with the DG, PERRA & DRUs as year end balances in their accounts.
***An amount of Rs.10,209,350 is available with the DG, SERRA & DRUs as year end balances in their accounts.
74
Table - 8.5
Overall Physical Progress Monitoring Report
For the year ended 30 June, 2006
Physical Progress
Planned
Units of
Output
(A) Livelihood Support
1. No. of Households benefited (Mansehra)
2. No. of Households benefited (Abbottabad)
3. No. of Households benefited (Battagram)
4. No. of Households benefited (Muzaffarabad)
5. No.of person days of employment generated(by distt.)
6. No.of community infrastructure rehabilitated(by distt)
7. No. of jobs generated (by district)
8. Micro-Credit Loans repaid (by district)
(1)
(B) Housing
1. No. and % of eligible families assisted (Abbottabad)
2. No. and % of eligible families assisted (Battagram)
3. No. and % of eligible families assisted (Kohistan)
4. No. and % of eligible families assisted (Mansehra)
5. No. and % of eligible families assisted (Shangla)
6. No. and % of eligible families assisted (Bagh)
7. No.and % of eligible families assisted (Muzaffarabad)
8. No. and % of eligible families assisted (Neelum)
9. No. and % of eligible families assisted (Poonch)
10. No. and % of eligible families assisted (Sudhnoti)
11. No. and % of houses reconstructed (by district)
12. No. of masons and carpenters trained - Masons (171) +
Carpenters (82)
13. No.of community based housing societies established
14. No. of training programs and workshops conducted
15. % of beneficiary grievances and complaints redressed
(C) Roads and Infrastructure
1. No. of water supply schemes and sanitation facilities
repaired/reconstructed (by district)
(2)
2. No. of kilometers of roads rehabilitated / reconstructed
(by district)
(3)
3. No. of households that have gained access to power
(by district)
(4)
4. No. of Public Buildings repaired and reconstructed
(by district)
(5)
5. No. of tons of debris disposed (by district)
(D) Education
(6)
1. No. of target schools fully functional
2. No. of target colleges/universities fully functional
3. No. of training institutions fully functional
(E) Health
(7)
1. No. and % of districts with reestablished curative
health care delivery system
2. No. and % of districts with reestablished preventive
health care system
3. No. and % of health institutions reconstructed
(by district)
4. No. and % of health institutions re-functioning (by district)
5. No. and % of existing health institutions strengthened (by district)
Actual
Units of
Output
Costs
Planned
Rs. ‘000
Life of Project
Actual
Rs. ‘000
Physical
Units of
Output
Costs
Rs. ‘000
250,000
42,244
11,283
22,932
45,083
2,250,000
376,140
33,849
68,796
387,867
42,244
11,283
22,932
45,083
376,140
33,849
68,796
387,867
34,012
37,369
22,745
74,605
8,871
32,724
6,974
54,755
25,468,450
582,900
2,337,250
464,300
3,782,125
8,871
32,724
6,974
54,755
582,900
2,337,250
464,300
3,782,125
26,482
55,014
98,221
0
51,705
0
13,437
24,723
90,572
7,836
23,349
342
890,725
1,835,050
6,699,525
494,375
1,678,150
25,375
13,437
24,723
90,572
7,836
23,349
342
890,725
1,835,050
6,699,525
494,375
1,678,150
25,375
253
253
59
59
75
Notes to ERRA Entity Statement of Sources and Uses of Funds
For the Year Ended 30 June, 2006
(1)
Khushhali Bank is working on a scheme
for extending micro credit facilities to the
earthquake affected persons in collaboration
with some donors. In this regard, the Bank
has also submitted a proposal for the approval
of State Bank of Pakistan.
(2)
Work on the WatSan Strategy is at a
fairly advanced stage. After the strategy is
finalized it will be submitted to the ERRA
Council for approval. Planning work including
survey of damages and preparation of PC-Is
for various schemes is in hand. The PC-Is shall
be approved by the District Reconstruction
Advisory Committees after their finalization
where after bids shall be invited for award
of work to contractors. In the meantime
various agencies and international and
national NGOs have started work on 300 small
water supply schemes from their own
resources. 161 of such schemes are located
in NWFP while the remaining 139 are in AJ&K.
District-wise break-up is as follows: Mansehra
(87), Battagram (74), Muzaffarabad (95) and
Bagh (44).
(3)
All roads in the earthquake affected
areas are open. Planning wok including
damage assessment and preparation of PCIs etc. is in hand. PC-Is for the 65 KM BasianBalakot-Mahindri-Naran Section of N-15, 65
KM Bhattal-Battagram-Thakot Section of N35 and 60 KM Kohala-Muzaffarabad-Chakhoti
Road have been prepared by the National
Highway Authority and were submitted to
ERRA on 13 May, 2006. ERRA Board considered
the PC-Is in its 4th meeting held on 13 June,
2006 and reffered the same to M/s NESPAK
for their scrutiny in the light of the
observations of the Board. Work on these
roads will start after approval of the PC-Is.
(4)
Electricity supply has been restored
in almost all of the earthquake affected
areas. The concerned agencies had also made
arrangements for the provision of electricity
76
to the relief camps established at various
places to house the displaced persons.
Planning work including assessment of
damages and preparation of PC-Is is in process
by the concerned agencies. Work on the
Power Strategy is also at a fairly advanced
stage and upon finalization the strategy will
be submitted to the ERRA Council for its
approval. In the meantime agencies like
IESCO, PESCO and AJ&K Electricity
Department have submitted their claims for
the installation works and supply of electricity
to the camps which are being processed for
submission of a withdrawal application to
ADB. Upon receipt of funds the claims of the
above mentioned agencies will be paid.
(5)
Work on the assessment of
Governance / Public Sector buildings is in
hand as is the case with the Governance
Sector strategy. Once the strategy is finalized,
it shall be submitted to the ERRA Council for
approval. Potential donors for funding the
reconstruction of governance buildings are
also being explored. Government of Turkey
is inclined to reconstruct the District
Government offices of Muzaffarabad at Ghari
Dopatta and the Government of the Kingdom
of Saudi Arabia is inclined to assist in the
reconstruction of the District Government
offices of Bagh and Rawlakot districts.
(6)
All educational institutions are
functional in the earthquake affected areas.
Education Sector strategy has been approved
by the ERRA Council and the planning wok
including damage assessment, rationalization
of the educational facilities, preparation of
PC-Is etc. is in hand. After preparation of
PC-Is various educational institutions will be
packaged for approval by District
Reconstruction Advisory Committees or
Provincial / State Steering Committees and
inviting the bids for different packages.
Process for pre-qualification of contractors
/ construction firms has also been initiated.
The actual work is expected to start in
September, 2006. In the meantime various
agencies and non-governmental organizations
have completed 55 semi-permanent / pre
fab structures / buildings while work on
another 17 buildings is in progress. In addition
to the above, work on 12 permanent
structures / buildings is in progress.
(7)
All health facilities are functional in
the earthquake affected areas. Health Sector
strategy has been approved by the ERRA
Council and the planning wok including
damage assessment, rationalization of the
health facilities, preparation of PC-Is etc. is
in hand. After preparation of PC-Is various
health facilities will be packaged for approval
by District Reconstruction Advisory
Committees or Provincial / State Steering
Committees and inviting the bids for different
packages. Process for pre-qualification of
contractors / construction firms has also been
initiated. The actual work is expected to
start in September, 2006. Details regarding
work done and work in progress are as under:
•
•
•
All DHQs and THQs are providing
healthcare services
49 prefabricated health facilities (34 in
AJ&K and 15 in NWFP) have been made
functional by WHO (35), UNFPA (5), MSF
(5) and ICRC (3)
53 transitional health facilities (primary
healthcare services) are functional and
are being operated by INGOs / NGOs
•
•
•
•
•
•
•
•
•
•
•
•
•
1 prefabricated Operation Theatre is
under construction in Battagram district
Topographical survey / soil testing of 2
BHUs in Bagh District has been completed
by IBC Turkey
BHUs in Muzaffarabad District has been
completed by ICRC
Topographical survey / soil testing of
health facilities in District Battagram has
been completed by JICA
model BHUs in Muzaffarabad and
Mansehra Districts has been completed
by JICA
RHC in District Muzaffarabad has been
completed by NVM
Site survey of 11 health facilities is in
process by PRCS
Site survey of 1 health facility has been
completed by KRCS
completed by Naval Headquarters
completed by Operation Heartbeat
completed by MGPO
Topographical survey / soil testing of
BHU in District Muzaffarabad has been
completed by Bosnia
Site survey of 3 BHUs in District
Abbottabad is in process by CARITAS
Pakistan.
77
Earthquake 2005
From Tragedy to Triumph
Every day begins with sunrise and ends at
sunset. And yet no two days are alike. Each
day deposits a new experience in our memory
bank, which leaves an impalpable imprint on
our mind. This collection of days and its
impressions develop our psyche, form our
personality and ultimately make our life as
we know and feel it. But beyond the mundane
there are some days that transform life with
a single experience. It is perhaps this turning
point that we call destiny over which we
have no control.
For me the sun rose on a glorious morning
on 8 October 2005 at Shangrila in Baltistan
with Kachura lake shimmering at my feet and
the lofty peaks of the Karakoram Mountains
guarding the entrance to the Deosai Plateau.
I marveled at the beauty of this region as I
started my journey to the airport to board
the flight for Islamabad. Suddenly the ground
shook under my feet and clouds of dust rose
from the cascading earth that came crashing
down the mountainsides in the distance.
Tectonic activity is common in the Northern
Areas and this minor tremor did not elicit
any alarming reaction. But when we reached
the airport the TV monitors in the waiting
lounge had a different story to tell. A high
rise building had collapsed in the Federal
Capital as the result of an earthquake that
measured 7.6 on the Richter scale. Suddenly
nature was not serene and beautiful but
ruthless and destructive. A hush fell on the
passengers and only those who had friends
or family living in the vicinity of the collapsed
building displayed signs of anxiety. Two hours
later on the same day the full impact of the
disaster began to unravel like a horror story.
Town by town, images on the electronic
media spanned an area of 30,000 square
kilometers showing aerial pictures of massive
road destruction, the collapse of public service
infrastructure and 3.5 million shocked and
terrified people rendered homeless in five
seconds.
In physical terms the jolt that shook the area
only impacted the landmass adjacent to the
epicenter but on a metaphysical plane it
moved the length and breadth of the entire
country to mobilize and lend synergy to the
relief operation. . I selected the Union Council
of Chakothi (AJK) as our base for relief
distribution. This quiet hamlet set in the
foothills of the Himalayas along the line of
control had known peace and tranquility only
for a few years since the cease fire agreement
with India in 2003. As a border town the
population had experienced the ravages of
war perpetrated by man but never before
had its populace witnessed the destructive
power of nature. The scale and enormity of
the destruction left the population paralyzed
with confusion and trauma.
Human response to adversity is governed by
the instinct for survival. The earthquake left
no life untouched and each life was controlled
by the dynamics of its circumstance. The
earthquake had reduced everyone to a
common minimum level of existence in which
tents, food and blankets became the axis
around which all life revolved. The focal
point for everyone was to meet his or her
immediate needs and ensure future security
to tide over the approaching winter season.
The end of the day always saw mixed
emotions. Those who got a tent left with a
feeling of security but those who had to wait
their turn for the next delivery despaired for
their future. Every day began with hope and
anxiety for all and ended with relief for some
and anguish for others.
In the midst of this cataclysmic event I noticed
the vacant look on the faces of the children.
They were scared and confused but their
parents were unable to offer them emotional
support. The struggle for survival left no time
to address metal health issues but with each
passing day their trauma stricken expressions
81
and eyes that shed no tears but brimmed
over with agony began to haunt me. This
silent but potent appeal for attention and
understanding made me initiate tent schools
in the hope of bringing some normalcy in
their lives. The idea was endorsed and
supported by the local teachers who displayed
tremendous dedication and enthusiasm. I was
impressed by the rate of literacy in the area
and the general interest in education.
I had no idea then that this simple initiative
to mitigate the psychological impact of the
disaster on young minds would result in my
undertaking responsibilities that would change
the direction of my own life.
For the moment I was immersed in the daily
saga of their struggle and part of the grief
and suffering of their everyday life. What
struck me most was the stoic acceptance of
loss by the people. After the first few days
of upheaval most accepted the calamity with
its attendant loss of life and property as the
will of God. Ordinary mortals could not
challenge this so the next best thing was to
absorb it without rancor and think of the
future. This remarkable strength of conviction
and courage to overcome the loss of life
helped ease psychological distress but the
need for shelter and food remained unabated.
4 Nov 2005 was the celebration of Eid-ulFitre. I arranged special gifts for the children
and organized a celebration party. During
the course of my interaction with them I
realized that whenever I asked a child to
make a wish he/she asked me to rebuild their
destroyed schools. The parents and the
teachers echoed the same sentiment. I had
arrived in this isolated place to provide some
relief and assistance in the immediate
aftermath of the earthquake but now found
myself getting sucked into the world of their
dreams and aspirations. The look of
expectation in the eyes of the children, the
passionate urging from the teachers and the
burden of hope placed squarely in my lap by
the parents left me with very little room to
exit without making a commitment towards
the reconstruction effort.
82
I had no idea then how to fulfill my commitment but resolved to explore every avenue
to generate resources to bring back hope and
optimism in the lives of the children. It
seemed like an impossible task. I did not
have money for even one project and I took
the responsibility to rebuild all the education
and health facilities that fell within the Union
Council of Chakothi. My only resource was
my determination and belief that if you have
sincerity of purpose and integrity of character
and work with commitment towards your
goal the entire universe conspires to help
you realize your dreams.
The age of miracles may be over but for me
the donors who appeared from nowhere and
enabled me to honor my commitments prove
otherwise.
One year later we have initiated work on six
schools and one rural health center. The
buildings translate the vision of the
Earthquake Rehabilitation and Reconstruction
Authority to build back better. Each school
will be completely furnished with all the
facilities that are available to any child in
the urban areas. We have also assumed
responsibility for enhancing the capacity of
the local teachers and providing support staff
for science subjects and computer literacy
programs for one year. In the health sector
we have upgraded the basic health unit into
a ten-bed rural health center and designed
to equip and furnish it with state of the art
equipment. Here also we have taken the
responsibility for its operational management
for one year. The citizens of Chakothi will
now have better infrastructure, improved
service delivery and the seismic safeguard
measures in the design will ensure that no
innocent and precious lives are lost in any
future calamity. For most these facilities are
something they could not even dream of one
year ago. The radical improvement in the
education and health sector which will benefit
a catchment population of over 20,000 people
is an example of how an adversity can be
transformed into an opportunity.
The earthquake wreaked havoc in the lives
of many people but it also showed us the
immense potential of shared responsibility
and collective effort. Never before in living
memory had the nation faced a calamity of
this proportion and intensity. Never before
had the nation united as one entity to work
together for a common cause. The collective
generosity and selfless service to humanity
are testimony to the highest values of human
character and proof of what people and
nations can do to overcome obstacles if they
work with sincerity of purpose and integrity
of character.
I wish that we didn’t always need a disaster
to come together to do the right thing. If we
could develop the capacity to show similar
solidarity during normal times towards each
other as human beings to create equitable
societies where everyone can live in peace,
security and harmony we could achieve
remarkable success.
Natural disasters are perhaps nature’s way
of highlighting the insignificance of man and
the redundancy of reckless pursuit of wealth
for transient gain. One day when the earth
has shattered enough lives, water has washed
our dreams and the wind has blown our lives
asunder we may realize a simple truth. When
man is reduced to a common minimum level
of existence, the comfort of human love and
compassion give more meaning to life than
all the worldly acquisitions. Let us hope that
we not only convert this adversity into an
opportunity but also learn lessons from such
disasters to promote a collective
consciousness that can usher in a new era
where gross national happiness will become
the index against which we measure success
and achievement.
The direction set in motion by the strategies
designed by the Earthquake Relief and
Rehabilitation Authority (ERRA) serve as a
role model for development. ERRA has
demonstrated that development need not
always be at the cost of the environment or
driven by vested interest but can be planned
and executed to preserve and protect the
dignity of man and the sanctity of nature.
Earthquake 2005 brought out the best in
every Pakistani. It will be remembered for a
long time for many reasons but for me the
spontaneous and collective response of the
nation will remain the defining moment of
pride. Perhaps the spark that was kindled by
disaster will give birth to a new understanding
that will elevate us to a higher level of
connectivity and make us transform our
national motto “Unity, faith and Discipline”
from rhetoric into practice.
By
Aisha Khan
83
Reflections on the past year
Pakistan was caught unaware on 8 October
2005 when the earthquake caused
unimaginable devastation. No country in the
world could have been adequately prepared
for such a calamity.
The earthquake shattered lives and
infrastructure; it disabled people and
capacity. Buildings, bridges, roads, electricity,
water and telephones were severely damaged.
But disasters do not happen; they unfold.
And the way they unfold is largely determined
by the response of national leaders, local
authorities, the society at large and the
international community. On that count, the
earthquake was upsetting but its aftermath
was uplifting.
The partnership between the government,
the military, the local authorities, the
humanitarian community and the society at
large made for an efficient and impressive
relief operation, in spite of the logistical
nightmare posed by the immense area
affected, its rugged terrain and the cold
winter.
A strong partnership quickly evolved between
the military and the humanitarian community.
Its hallmark was pragmatism, competence
and a degree of openness in civil-military
relations seldom seen in relief work before.
To be effective, coordination must work
within and between sectors. The clusters
made a real difference. The lesson is to start
the cluster arrangement as soon as possible.
They bring a sense of structure and direction
when the situation is overwhelming and
chaotic. Clusters require considerable time
and effort. To be effective, they need strong
leadership and adequate investments by a
few individuals in terms of convening and
chairing meetings, keeping minutes and
following-up on decisions. The prime function
of a cluster is collective decision-making; it
84
is not merely a platform for information
sharing.
The transition from relief to recovery and
reconstruction has been led by the Earthquake
Rehabilitation and Reconstruction Authority.
ERRA has developed common strategies,
conducted needs assessments and situation
analyses, installed coordination tools, and
ensured uniform administrative structures.
The joint Early Recovery Plan exemplifies
the technical and substantive collaboration
between ERRA and the UN. It is a modest but
concrete contribution to help overcome the
gap between the end of relief and full-scale
reconstruction. Early recovery is not about
‘brick & mortar’ but about training of teachers
and nurses; providing essential drugs and
teaching material; training masons and
electricians; restoring capacity to essential
public services; removing rubble; providing
essential agricultural implements to restart
farming and livestock; and delivering residual
relief and protection to people with special
needs.
ERRA’s policy of owner-driven housing is
transforming a calamity into an opportunity.
Approximately six hundred thousand houses
units are being rebuilt by the people with a
subsidy of about US$3,000 each as a minimum
to cover the cost of shelter for the most
needy and vulnerable households.
The lesson is that concerns about recovery
and reconstruction cannot start soon enough.
It must begin in parallel with the initiation
of the relief operation because the
complexities involved require considerable
more planning and consultation. The argument
that work on recovery and reconstruction
must wait till the relief operation is up and
running is invalid.
Sustained financial and technical support by
the international community is essential for
long-term reconstruction and rehabilitation.
As the heart-rending images on television
dissipate, it is imperative that the world does
not forget those who suffer from disaster and
disease. Indeed, neglect can easily spell
another humanitarian crisis.
The ongoing recovery and reconstruction
initiatives in Pakistan merit continued
international support, especially in the form
of adequate and predictable funding for the
next 3-5 years – primarily through grants,
secondarily through soft loans.
The smooth coordination of such a large
coalition of partners also requires that all
comply with the principles of the ‘Paris
Declaration on Aid effectiveness’. They imply
that the procedures associated with external
support must be simplified, aligned and
harmonised with the national procedures,
policies and priorities. A successful partnership
will not only require more money but also
more ownership and less donorship.
By
Jan Vandemoortele
Humanitarian Coordinator & UN Resident
Coordinator
85
Pakistani and UN Disaster Assessment and Coordination
(UNDAC) Cooperation in the 2005 Pakistan Earthquake
and aftermath
The basic facts are startling: Seven-point-six
on the Richter Scale the earthquake shook
the earth for approximately a minute,
destroying hundreds of thousands of homes
and damaging many others. Hundreds of
medical facilities, most government buildings,
many roads, bridges, electricity supplies,
water services, sanitation facilities, all things
wiped out in that minute. Three and a half
million people became homeless; 30,000
square kilometres were affected. According
to an estimate thirty five thousand school
children were killed. An equal number of
adults in towns also died. Seventy-three
thousand gone, as many again severely
injured.
In terms of scale, a greater territory was
affected than that affected by the Asian
tsunami. There were more injuries, although
less deaths. The terrain, rather than flat and
coastal, was mountainous and rugged. The
weather, rather than temperate and tropical,
was Himalayan, threatening and lethal. The
freezing temperature of the mountainous
winter was less than two months away.
Predictions of massive second waves of death
caused by infection, starvation and cold were
realistic and frightening. Disease could be
expected, calamity was thought certain.
Faced with a massive catastrophe without
precedent in modern times, many times larger
in impact than Hurricane Katrina, the Pakistan
government, nonetheless, had to react.
Expectations were bleak and the task was
huge, yet less than six months later the
Government of Pakistan, with the support of
the Pakistani people, international agencies
and organizations, and foreign volunteers,
was able to declare relief operations
successful and over.
86
The second wave of deaths had been avoided;
deaths from the cold were less than those
recorded for the previous year. No one starved
to death, no diseases breakout occurred.
Just under a million tents were distributed,
nearly 400,000 emergency shelters were built,
water supplies were rebuilt, and the closed
areas of Kashmir were opened to foreign
assistance. In less than six months the Pakistan
Government, with the help of the
international community, was able to say
‘job well done, now let’s look to rebuild.’
So how did this all happen, and how did we
get to where we are now?
One lesson remains paramount: Cooperation
is king.
In any natural disaster of this size, in any
country in the world, a stable government
turns to its military for immediate response.
Given that the earthquake struck and had
effect in both Pakistan controlled and Indian
controlled Kashmir, including across the Line
of Control it was natural that both the Indian
and Pakistani military were mobilized.
Although it took some days to re-establish
full command and control mechanisms to
replace senior, middle level and junior level
commanders who died in the earthquake,
the Pakistan Army was able to respond in the
initial days, to varying degrees depending on
the strength and ability of remaining
personnel in each location.
The forces were activated for search and
rescue for civilians and soldiers alike, to asses
damage, and secure the frontier, which had
been brutally fought over in previous years.
In those first few hours and days, as
communication links were out of order, as
command structures had been decimated and
key personnel wiped out, order had to be
restored, law and order enforced, and most
importantly, thousands upon thousands of
medical emergencies had to be dealt with.
But not only did the Pakistan Army mobilise,
so did the international community.
The duty officer in the United Nations Office
for the Coordination of Humanitarian Affairs
was awakened at 5:30 a.m. on Saturday 8th
of October, Geneva time, and informed that
that a massive earthquake struck 10km
underground approximately 100km from
Islamabad, the capital of Pakistan. By 8:30
a.m. UN senior staff, were all in the second
floor office of the UN’s European HQ, Palais
des Nations in Geneva. The UN immediately
notified possible response personnel, including
search and rescue teams, to be on alert in
case the earthquake would require
international response.
From the very first hours it was apparent
that assistance would be required from
outside of Pakistan. A United Nations Disaster
Assessment and Coordination (UNDAC) team
would certainly be useful, as a major
earthquake close to population centres was
obviously going to pose and difficult and
complex challenges. A fast mobilisation would
be needed.
Three key factors helped to produce a fast
mobilisation. Firstly, Pakistani officials who
had been trained in the UNDAC system were
informally sought out and asked if assistance
would be requested by Pakistan. Secondly,
a pre-existing standby agreement with the
Government of Switzerland was activated to
provide a special aircraft for a team, if it
were to be requested. Thirdly a potential
UNDAC team was identified from pre-existing
rosters, members put on four hours notice
to move and personal and institutional
preparations began.
By the middle of that Saturday afternoon the
President of Pakistan officially requested the
United Nations to mobilize support, including
the UNDAC team, which arrived the following
morning, merely 24 hours after the
earthquake. Only one other foreign team,
the Turkish Red Crescent Society’s search
and rescue team, reached the affected zone
as fast.
In the initial stages the early request and
deployment of the UN Coordination team was
a critical factor in its early arrival and hence
the corresponding early coordination of
international search and rescue teams. The
fact that Pakistan had within its military
structure people who had been UNDAC
trained, and personally knew the UNDAC
members, was of great benefit.
The early request for assistance by Pakistan
was a key critical decision. It is better to
call for assistance and then send it back if it
is not needed, than to have aid arrive too
late.
In any emergency, in any country, the first
two weeks are haphazard at best – and
Pakistan was no exception. By the end of the
first week multiple international search and
rescue teams were on the ground, augmented
by Pakistan military, coordinating in a
haphazard way, but with strong direction by
local military commanders and the UNDAC
field teams.
Logistical problems were a mounting
nightmare. Roads were not just cut or
blocked, many mountain sides had collapsed
meaning that roads weren’t damaged, they
were simply gone – and for all intents and
purposes ceased to exist. Helicopters were
vital. The Pakistan military stock of
helicopters was insufficient to deal with the
massive needs, even augmented by US military
support. The UN had been able to initiate a
handful of helicopters, but poor donor
87
response meant that few could be leased.
Early estimates assumed a need for over 100
helicopters – which would make this the larges
helicopter aid airlift in history.
While local military, international and
spontaneous national groups were doing all
they could for emergency medical evacuation,
aid deliveries and rescue, what was missing
was a strong central direction. Given that no
functioning National Disaster Management
Authority existed, and given that the military
was set up to deal with conflict not aid, the
urgent need for the newly created Federal
Relief Commission grew and it, together with
the Army, responded.
Two organizations not used to cooperating
are an active military and a sceptical
humanitarian world – especially in sensitive
zones.
Prior to the earthquake in Pakistan only a
hand full of foreigners were allowed by
Pakistani authorities to access Pakistan
controlled Kashmir. The Line of Control was
sensitive, with major exchanges of artillery
between India and Pakistan a fairly frequent
occurrence. Most major governments had
travel advisories published recommending
against travel to Kashmir, including Britain,
USA and Australia – the national homes to
many aid workers. Travel advisories also
recommended against foreign travel in this
zone. In such difficult areas the military can
be understandably hesitant to open up
controlled areas to a host of poorly regulated
and loosely aligned foreigners as part of a
large and disparate group known as ‘aid
workers’.
Aid workers, for their part, often have deep
institutional mistrust of the military. In many
countries ‘army’ does not mean ‘professional
organized force’; rather it might describe a
12 year-old boy, drugged and carrying a
Kalashnikov. Although this is clearly not the
88
case in Pakistan, institutionally many
organizations find it impossible to work closer
than ‘at arms length’ with the military. Added
to this, the requirements of earmarked
funding, mandates, and principles of
neutrality and independence, mean that
many institutions, and many individual aid
workers, have never worked, nor ever wanted
to work, with the military.
Given that the earthquake occurred across
two sensitive, contested areas, and given the
institutional hurdles that often exists between
the aid world and the military world, the
outlook for cooperation and coordination
might have been expected to be bleak.
How different reality was. The UNDAC team
expanded after the initial two weeks,
establishing forward ‘Humanitarian Hubs’ in
Muzaffarabad, Bagh, Battagram and Mansehra
– each with a civil/military liaison officer
provided by the UN. The objective here was
to increase and facilitate inter-action between
the military and the civilian world at the
field level.
What started off on paper as two unlikely
allies, the humanitarians and the military,
developed to become a strong, united team.
While bonds were strengthening centrally,
military and humanitarian actors worked
increasingly well at the field operational
level. The cluster coordination mechanism
put in place at Islamabad was replicated in
the field hubs with all parties seeking to work
through the natural distrust that military had
with humanitarians, and vice versa, until
strong relationships were built.
Over time the humanitarian operations and
military operations became so interlinked
that at the strategic level there could no
longer be any meaningful division between
the military operation and the humanitarian
operation. It was one.
By the time December came to an end the
overall operation had taken shape. The FRC
was up and running, the UN Cluster system
was up and running both in the field hubs
and in Islamabad, but things were not easy.
The operation may have been ‘working’ but
it was only working because people, Pakistani
civilians, military and internationals were all
working long and arduous hours, and for those
in the field, they were doing so in very tough
conditions.
Beginning the Transition
Experienced UN and humanitarian staff are
painfully aware that, at the end of relief
operations, a lull often occurs before the
recovery and reconstruction phase begins.
Aid workers leave an emergency zone,
contacts and momentum are lost, and the
humanitarian impetus to coordinate is
replaced by the need to return to normalised
planning with government ministries and
agencies. Moving from ‘reactive’ decision
making to bureaucratic planning is both
needed and difficult.
Such predictable problems were discussed
openly with government and international
interlocutors.
As early as late 2005 and early 2006 progressed
and the end of relief operations was in sight,
planning for post relief began. Given that
the relief effort in Pakistan was experimental
in its development of the ‘Cluster Approach’,
the transition would also therefore be
‘experimental’.
Following detailed discussions with different
organisations and government, a decision
was taken in mid January to do away with
the cluster coordination system for the early
recovery phase.
This decision to close the Clusters is now
seen by some as pre-mature. The degree of
cohesion and coordination within the
international community diminished and the
interface between local authorities and
international actors also become less clear.
ERRA has therefore decided to replace the
former coordination clusters with sectoral
working groups under the leadership of each
of the ERRA program managers. Their ongoing challenge is to ensure that the resources
available for the early recovery phase and
the reconstruction phase are used in the best
and most efficient way possible.
Whilst early recovery and the beginning of
reconstruction are both difficult, a lot of
progress has been made. Most people in rural
areas will be in either a reconstructed house
or a consolidated shelter this winter.
Equally for urban areas, like Muzaffarabad
and Balakot, new town planning needs to be
finalised, seismic studies analysed and only
then can we ensure that such disasters are
not repeated for the children and
grandchildren to suffer.
Whilst everyone wants to have a house this
year, it is simply not possible for any
government to sponsor such a large
reconstruction so fast. When one looks around
the world to tsunami affected countries,
Hurricane Katrina, Gujurat, Bam and other
devastated regions, one sees that the norm
is for full reconstruction to take many, many
years.
Fortunately in Pakistan we find a strong,
hardy and resilient people. They have a
challenge to work with the government and
international supporters to build back - to
build back better and to resist the temptation
of fast and shoddy.
When I look back on my 12 months here I see
a relief operation that has been enormously
successful. It was the right decision to
experiment with the cluster approach as a
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joint experiment between the government
of Pakistan, the United Nations, NGOs and
major donors. As the transition period unfolds
some difficulties have arisen, but a lot of
progress made. Needless to say, a lot more
needs to be done with the people, the
government and the international community
working together.
United States, China, Nepal or whichever
country they came from.
For all of us who came to do our small part
to assist this country, we have all learned of
the spirit, the warmth and the hospitality of
the Pakistani people. For that we thank you
and may one day we enjoy each other’s
company in the peaceful, beautiful and rebuilt
regions of Pakistan. Insha’Allah.
And finally, Pakistan now has over 1,000
ambassadors throughout the world. All those
relief workers that came are filled with stories
of Pakistan that they tell their friends and
families in Australia, Britain, Germany, The
By
Andrew MacLeod,
Chief of Operations UN Emergency
Coordination Centre (Oct.-Dec. 2005),
Senior Adviser to ERRA, (Jan. 2006 onwards)
How Life Changes
One year on, the communities devastated by
the Oct. earthquake are recuperating with
the assistance of donors, development
agencies and NGOs in partnership with ERRA.
Rebuilding is going on and will go on for quite
some time to come. Reconstruction and
rehabilitation is indeed a huge task, which
has to be strategized and organized in a way
that maximum benefits can be extracted
from the available resources.
So the Phoenix is rising from the ashes, as
they say. But for most of the people in
earthquake areas, life as they knew will never
come back. More than anything else the loss
of their loved ones can never be compensated
no matter whether they rebuild their homes
or restart their livelihoods. In fact in the past
one year, they have realized that even things
like their homes and sources of livelihoods
are not going to be the same. Yes, indeed it
shall never be the same again.
Safia Bibi who lost her husband in the quake
has five children to look after on her own.
Before the earthquake she used to stay at
home raising kids, while her husband used
to go out to work. She has not only been
coping with the emotional trauma of losing
her husband but also had to find means of
income and livelihood to support her kids.
There are many families whose head of the
household always traditionally a male, has
either died or suffered from permanent
physical disabilities. Women have never been
the breadwinners of a traditional family and
nor expected to go out for work. With the
emergence of female-headed households in
post earthquake scenario and by the force
of circumstances the social taboo attached
to women working outside homes is giving
way to the demands of reality and becoming
more socially acceptable.
Consequently, Safia approached a women
empowerment center established by an INGO
where vocational training along with
opportunities of cash for work were being
given to women. She learnt not only how to
sew but she also made some cash by sewing
tote bags needed for some other project of
the same organization. Such centers being
run by different NGOS are performing the
dual functions of imparting marketable skills
to women to make them financially
independent and also provide them an
opportunity for group therapy and catharsis
by sharing their grief and trauma.
There are other aspects of changes taking
place too. Several NGOs and donor agencies
have been providing maternity health services
along with primary health care in both rural
and urban areas of earthquake-affected
region. Maternity care services in rural areas
are indeed a novelty as giving birth under
the supervision trained staff in a maternity
care facility is virtually unheard of in the
rural areas. At first women in and around the
remote village of Danna, district
Muzzaffarabad were hesitant to approach
maternity care facility established at a Rural
Health Center by an INGO. Traditionally they
were used to giving birth at home. But when
Farzana and her husband took the “bold step”
of availing the option of delivering their baby
in the centre, others slowly followed the
suit. Farzana had lost her first baby due to
the negligence of traditional midwife and
when she heard of all female trained staff
at the centre she decided not to risk second
time by delivering at home. Now, delivering
babies at maternity centers is becoming a
preferred option for rural women too as
services are being made available in the
reconstruction process.
The tremors of earthquake not only altered
the ‘life style’ of people in a permanent way
but even the structures of their abodes had
to undergo a change. A significant number
of causalities and injuries in the affected
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region were associated with the complete
collapse of single story un-reinforced stone
masonry buildings. Now that people are
rebuilding their house they cannot go back
to their old ways of construction. According
to ERRA’s guidelines, local masons and
builders are being trained to construct
seismically safe houses.
To ensure a relatively smooth transition
towards the new beginning and to help people
to adapt to new changes, INGOs are providing
training in relief and rehabilitation, livelihood
rebuilding programs, psychological counseling
training for relief workers, community
mobilization, logistical management and
reconstruction of essential buildings such as
schools and clinics in collaboration and
partnership with the local communities and
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the authorities. Indeed when community
members, government and international
partners work and plan together, their impact
outweighs and outlasts what any of these
single entity can accomplish on their own.
By fostering sustained commitment,
coordination and collaboration based on
shared vision and mutual respect, ERRA and
its partners can prevent bottlenecks in
reconstruction and rehabilitation so that the
earthquake affectees can better cope with
transformation that rocked their lives.
By
Samia Shah
Advocacy and Communication Manager,
International Rescue Committee (IRC)
Earth Qauke of October 8Th
Lessons Learned
October 8th 2005 the nation experienced the
most devastating earthquake in the history
of Pakistan, which left wide spread
destruction in North West Province and Azad
Jammu and Kashmir. The death toll estimated
about 73000, injuring another 70,000 whereas
2.9 million people left homeless in the
affected areas. Such wide scale destruction
gave a jolt not only to social, physical,
economic and business infrastructure but it
appeared a great challenge for Government
of Pakistan and its administration to give an
immediate response to emergency situation.
It seemed difficult to fulfill the needs of
people due to destruction of roads and
communication system barring accessibility
to population, continuous after shocks, land
slides and harsh weather. On the other hand
lack of resources e.g. availability of heavy
machinery for clearing debris of building and
clearance of road, medical facilities for first
aid, accessories for shelter and scarcity of
food items for the victims made the target
seemed unachievable.
However, the response from general public,
international community and development
organizations was immediate and encouraging.
Their contribution in generating money, food
items and non food items, machinery for
clearance, and bringing technical aid (health
and construction) into the country is
commendable. Arrangements of helicopters
enabled to reach the far off affected
communities and provide aid to them. NGOs
and INGOs played a tremendous role in this
scenario by developing strong coordination
forums & mechanisms. Department of
communication and construction of roads
performed a remarkable job by clearing the
roads and making the communication
functional in a limited time. Hence, overall
response to such huge destruction remained
commendable.
The deficiency caused by roads brokerage or
blockade was overcome through the use of
Helicopters, which although was expensive
but was effective to deliver relief to the
unreachable communities.
Bette and clear communication was ensured
through coordination mechanisms developed
by UN and other INGOs’ forums. Information
sharing was an important component of all
the operations which saved a lot of time and
reduced the chances of duplication of work.
Getting over half a million tents in a very
limited time was a tremendous achievement
by it self without getting involved in the
debate of their quality.
Local as well as International media played
their part very effectively by bringing the
ground realities to the knowledge of an
ordinary person. However media needs to be
sensitized about not to focus only the negative
points but also appreciate the positives and
bring it to the knowledge of general public.
There were some gray areas, too, which were
neglected by the government and policy
makers in the past. One of them is
unavailability of access roads to distant areas,
another is telecommunication. Although some
mobile companies did an excellent job in
providing their services in major cities such
as Bagh, Muzaffarabad, Rawalakot and Balakot
during this crises, but rest of the areas still
need a proper and economically affordable
access to telephone communication.
Civil Defense Department (CDD) which was
supposed to be on the forefront in all the
relief efforts was not seen at all on the field.
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This was mainly because CDD had no
equipments, resources and preparation to
meet any disaster situation. CDD should be
strengthened as all over the world this is the
responsibility of this department to lead the
rescue and relief efforts.
There should have been more direct
Coordination between ERRA, INGOs and local
NGOs as these are the people who are really
working on the ground. This would have given
ERRA very clear and in time feed back on its
policies.
Provision of NOC to implementing
organizations is another issue. Even after one
year many INGOs are still not clear about
how many NOC’s they need and who is
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authorized to provide these. This has resulted
in great deal of confusion and duplication of
efforts as well.
As discussed earlier the role of Civil Defense
Department (CDD) has to be enhanced by
involving it to strengthen the local civil
society.
In conclusion, the time has come to apply
these lessons to be better prepared for the
future.
By
Raja Rizwan Ashfaq,
Humanitarian Program Coordinator,
Islamic Relief
Better Preparedness for Natural Disasters
Can Save Lives and Livelihoods
Vulnerability Profile
The October 8, 2005 earthquake was an eye
opener in terms of highlighting the need for
the Government of Pakistan, the UN, the
International Organizations and NGOs to make
collective efforts to reduce risk, increase
disaster response capacity and improve
support to recovery from disasters. Over
73,000 deaths were reported along with
damage assessments of housing losses of 84%
in AJK and 36% in NWFP. A total of 3.5 million
people were affected and required some
form of humanitarian assistance in the form
of shelter, medical care, food and water and
sanitation facilities.
The response to the Earthquake has prompted
the international humanitarian to take a
critical look at their capacity to meet the
needs of people affected by disasters in
Pakistan. While the immediate response was
provided by the Government, civil society,
international donors, the Federal Relief
Commission (FRC) mounted a swift and
exemplary rescue and relief operations. With
the Earthquake Rehabilitation and
Reconstruction Authority (ERRA) providing
support medium to long-term recovery and
reconstruction efforts, the need for a National
Disaster Management authority is eminent.
Disaster management in Pakistan typically
revolves around flood disasters with a primary
focus on rescue and relief. After each disaster
episode the government incurs considerable
expenditure directed at rescue, relief and
rehabilitation in addition to the loss of
development funding diverted to meet critical
needs.
Developing a New Approach
The nation’s ability to increase its capacity
to withstand natural disasters lies in the
adoption of new strategies. Adopting a
proactive approach to disaster management
will ensure risk reduction to particular hazards
affecting the most vulnerable sector of the
population – financially impoverished women,
children, the elderly and the handicapped –
as well as to raise the impact of the national
development strategy on poverty alleviation.
The recent frequency of natural disasters in
the past decade, particularly floods, drought
and earthquakes, had added an additional
dimension to the task of development
planners. Risk management and reduction
training is necessary for both those
stakeholders developing preventative and
rescue measures as well as those people
directly affected by such risks.
Disaster-related losses are hardest felt within
historically disadvantaged communities.
Current national efforts in poverty reduction,
land reform, housing, employment creation
and service expansion offer cost-effective
opportunities to integrate risk reduction with
development initiatives. Failure to seize the
opportunities increases the potential for
costly losses both at the household and
community level.
Current perceptions of disasters need to
change. Disasters are not primarily rare
occurrences managed by emergency rescue
services. Rather, there needs to be a common
awareness and shared responsibility for risk
reduction in every aspect of our lives. It is
clear that the risk factors for disaster
occurrences are interconnected and
increasingly driven by patterns of
developmental vulnerability. A disaster event
can cause human, property, environmental
and economic losses which divert energies
and resources away from opportunities for
sustainable growth.
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The development of a new approach to
disaster management calls for a two-pronged
approach:
•
•
A significantly strengthened capacity to
track, collate, monitor and disseminate
information on phenomena and activities
known to trigger disaster events, such
as droughts, floods, epidemics and fire.
This needs to be supported by
institutional emergency preparedness
and response capacity primarily by
government at local, provincial and
national levels.
An increased commitment to prevention
and mitigation actions that will reduce
the probability and severity of disaster
events. These actions should be
incorporated into existing and future
policies, plans and projects of national,
provincial and local government, as well
as policies and practices of the private
sector.
The Way Forward
The Prime Minister has championed the way
forward through with the National Disaster
Management Law of 2006 already approved
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by three Provincial Legislations (Northwest
Frontier Province, Baluchistan and Punjab in
addition to the Northern Areas and Azad
Jammu and Kashmir, in support of the
National Disaster Management Authority
(NDMA). The development of a sustainable
NDMA to serve as the national strategic/policy
coordinating body for preparedness,
mitigation, early warning, relief,
rehabilitation and recovery activities that
will be lead by provincial and district officials
is a key output to be achieved. The NDMA
will serve as the secretariat to a National
Disaster Management Commission (NDMC), a
body composed of select ministerial
representative and other key stakeholders,
responsible to coordinate disaster
management in its broader sense and include
the integration of disaster into the sectoral
development policies of Commission
members.
Pakistan is moving in the right direction Ö
recognizing that countless lives and livelihoods
will be saved by developing mechanisms to
anticipate and reduce the risk from natural
disasters.
By
Earl Goodyear,
Senior Recovery Advisor RC office
Earthquake 2005
Challenges of Reconstruction
The dictionary meaning of “construct” when
used as a verb means to build and when used
as a noun means an object of perception or
thought. This physical labor and mental input
became the two governing precepts that
determined our reconstruction policy in the
earthquake-affected areas. It is an accepted
principle that construction is easier than
reconstruction. When you combine this with
large scale reconstruction where time lines
are critical, the facilities under construction
are public service buildings and the location
is subject to frequent slope failures that
cause indefinite delays in the transportation
of material than the challenges of building
assume gigantic proportions. As if this criteria
alone was not sufficient to brace you for a
tough undertaking the need to incorporate
the vision of The Earthquake Reconstruction
and Rehabilitation Authority (ERRA) to build
back better further compounds the mission.
As we embarked on this journey into the
unknown, the future unraveled the small and
big surprises that were in store for us as we
made our slow and steady progress toward
the desired goal.
The Mountain and Glacier Protection
Organization assumed the responsibility to
rebuild the education and health facilities in
the Union Council of Chakothi. At the time
it seemed like the most natural choice. We
had undertaken relief works in Chakothi and
developed linkages with the local community
and during the course of our stay started
contemplating the idea of getting engaged
in reconstruction. Little did we realize that
we were choosing the most difficult area to
access where the percentage of landslides
was ten times more than in any other area.
The first determining factor in under taking
any project is economic feasibility. It seemed
that donor agencies did not differentiate
between the cost of construction based on
distance from origin. As a result there were
very few construction agencies that were
interested in building in far flung areas when
they could find work in other areas that were
relatively free of hazards and closer to base
for the same price. Distance and accessibility
limit your choice and options of construction
technology. The definition of temporary and
permanent structures suddenly assumes a
new meaning and the dividing line between
permissible and non-permissible building
technologies becomes impenetrable. Every
aspect of construction is subject to clearance
from ERRA, which requires detailed submission
of paperwork. In a disaster area a topographic
survey becomes necessary to ensure that you
are not encroaching on adjacent land. Building
seismically safe infrastructure requires soil
survey to determine the load bearing capacity
of the soil to design the foundation and entails
a study of the surrounding area to incorporate
proper drainage systems. The final designs
need to be approved by ERRA and the quality
of material also has to be tested for strength
and specification to ensure that sub-standard
material is not used for construction. The
presence of a site supervisor and an engineer
to ensure quality and monitor technical
implementation therefore becomes necessary
at all times. It is not easy to find dedicated
and committed people who are willing to live
in an area from where exit can be blocked
for weeks by disruption in road links. But our
motto to preserve and overcome helped us
to abide by the rules without comprising the
quality of work.
Fieldwork no matter how tough somehow
gets done with grit and determination but
paperwork specially that needs to go through
bureaucratic channels becomes time
consuming and sometimes frustrating because
it detracts you from work on ground.
During the course of construction we
encountered natural hazards in the shape of
slope failures that blocked access for several
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days, heavy monsoons that flooded the
foundations, extended power outages that
prevented use of electric machinery to
operate tools and several other labor related
issues but none caused anxiety because the
solution of every obstacle no matter how
difficult was in our hands. But the brunt of
paper work on a small organization to fulfill
the criteria requirements of the donor agency
took the maximum toll. Our inexperience
with World Bank paperwork taxed our nerves
but we were supported and guided by the
Pakistan Poverty Alleviation to cross this
bridge as well.
At the end of the day a challenge is as big or
as small as you perceive it. What makes you
succeed, quit or fail is your own attitude and
the work ethics and support of your team.
Nothing is achieved in isolation. Independence
can only be achieved by accepting
interdependence as an integral part of every
achievement. The MGPO team never wavered
in its commitment and its determination to
work against all odds to resolutely overcome
every obstacle enabled it to achieve
something that will transform the lives of
the people of Chakothi.
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We are happy that with the dedicated effort
of a few the lives of thousands of people will
witness a positive change. Everyone can make
a difference. All you need is conviction in
your cause and faith in your ability. I have
never known the combination of integrity
and sincerity to fail.
The MGPO team views its reconstruction
projects more as rebuilding shattered lives
and less as putting up structures with brick
and mortar. For us providing improved service
delivery does not mean providing furniture
and equipment but reviving hope and instilling
optimism for the future.
This work was a new experience for our entire
team but we have grown and learnt valuable
lessons from relief to recovery and from
rehabilitation to reconstruction. Most
importantly we have been a part of
transforming an adversity into an opportunity
and are now poised to keep our tryst with
the people of Chakothi and look forward to
our journey together into a new future.
By
Aisha Khan
Lessons Learned from the
South Asian Earthquake of Oct. 8, 2005
The relief effort that followed the 7.6
earthquake in northern Pakistan (and also
struck India and Afghanistan) on Oct. 8, 2005
was massive, prompt and largely successful
– despite the virtually inevitable lack of
preparedness for a disaster on such a scale.
What was accomplished by the collaboration
of the US and Pakistan illustrates the
importance of decisive leadership and
effective cooperation between and across
governments. The experience also highlights
the importance of disaster preparedness,
information management, donor coordination,
and public relations in addition to the
traditional array of emergency response
priorities.
This article does not pretend to be a
comprehensive review of lessons learned by
all actors in this enormous complex of
operations; it is, instead, the view of one
person who worked closely with the
Government of Pakistan and many NGOs but
saw the drama primarily from the perspective
of the US Government’s multidimensional
effort to support Pakistan’s emergency relief
activities. The USG was but one player in a
drama that involved participants from many
countries and institutional settings. The
Government of Pakistan remained at center
stage throughout, overcoming initial obstacles
to eventually orchestrate a largely successful
relief operation.
COPING WITH THE UNEXPECTED
The October 8 earthquake was the biggest
natural disaster that Pakistan has ever faced.
The area that is now Pakistan had not
witnessed such an event since the Quetta
earthquake of 19351, which destroyed the
1
2
city and left at least 20,000 people dead.An
earthquake of this magnitude in such remote
and rugged terrain would have posed an
enormous challenge even in the best of
circumstances. The earthquake was
magnitude 7.6, striking Pakistan, India, and
Afghanistan. The earthquake killed more than
73,000 people in Pakistan and approximately
1,3002 people in India. As it was, the GOP
had no disaster management systems in place,
and neither the international donor
community nor nongovernmental
organizations were configured to respond
immediately to such widespread devastation
in such remote and rugged terrain.
Numerous civilian international organizations,
including the UN Office for the Coordination
of Humanitarian Affairs (OCHA), the UK’s
Department of International Development
(DFID), the European Humanitarian Office
(ECHO), and the USAID Disaster Assistance
Response Team (DART), also responded with
varying degrees of effectiveness. Most
notably, the U.S. Combined Disaster
Assistance Center (CDAC) quickly helped
formed the backbone of the Government of
Pakistan’s logistical efforts. Military assistance
likewise arrived from around the world.
GRAPPLING WITH THE UNKNOWN
During the early stages of the relief effort,
neither the GOP nor the UN had access to
the information and analysis needed to
accurately reflect the rapidly changing
circumstances on the ground. Rather than
informing relief agencies of the blankets,
tents and other materials still needed, for
example, some early tracking focused on the
The area that is now Pakistan had not witnessed such an event since the Quetta earthquake of 1935, which destroyed
the city and left at least 20,000 people dead.
The earthquake was magnitude 7.6, striking Pakistan, India, and Afghanistan. The earthquake killed more than 73,000
people in Pakistan and approximately 1,300 people in India.
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number of relief flights traveling to and from
the disaster areas.
In the absence of information about actual
needs, humanitarian organizations throughout
the world collected relief supplies that, while
well intentioned, were often unnecessary or
inappropriate items for distribution to the
affected areas. Moreover, information gaps
prevented relief organizations on the ground
from rationalizing the relief delivery process.
Some relief agencies responded to the lack
of a reliable central information supply and
delivery database by conducting individual
assessments of resources and supply gaps,
which squandered scarce management
resources. Organizations conducted rapid
assessments but did not refine or update data
to reflect changing circumstances, resulting
in incorrect needs assessments. Supplies of
food, for instance, continued to exhaust
available airlift capacity long after the
demand for food supplies had been met.
LOGISTICS
In the earliest days, the Pakistan response
was managed by the GOP military as a
straightforward logistical operation. Initially,
some viewed the challenge as simply a matter
of collecting displaced communities in a
central location and providing them with food
and shelter. However, damaged roads and
mountainous terrain complicated distribution
of supplies.
The storage of relief supplies and donations
posed another logistical problem, as the
influx of donations from around the world
quickly accumulated As a result, the
Islamabad International Airport became the
de facto storage area for relief donations.
Unsorted, sometimes inappropriate items
slowed the relief operation as they
accumulated on airport tarmacs. Specific
delivery and distribution requirements
imposed by private donors created extra
work, increasing delivery costs and
interrupting distribution flows.
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Fair Supply Distribution. One of the most
crucial and difficult aspects of the earthquake
relief effort was ensuring that distribution
of supplies was equitable and efficient.
Initially, the urgency of the relief effort led
to a perceived “dump and run” approach to
operations. This precipitated large groups of
people swarming relief helicopters and trucks.
The Pakistan military soon recruited local
leaders to organize a more effective
distribution system, and also introduced a
receipt system to ensure fairness. Both
approaches worked well, and would likely be
appropriate in other disaster relief situations.
As the earthquake relief response unfolded,
USAID and other relief agencies concluded
that local purchases of necessary supplies
were much preferred to the uncoordinated
mass shipments from donors throughout the
world. Calls for cash assistance rather than
material donations would have facilitated
GOP and donor community management of
supply purchases and inventories.
Camps and Camp Management. Initially,
the GOP anticipated that the vast majority
of earthquake-affected populations would
have to move to pre-established camps for
the winter; in fact, some in the GOP were
prepared to force this move to promote safety
and to simplify relief operations. President
Musharraf prevented this misstep, stating
that people in the mountain areas were
“tough” and could survive the winter with
the help of targeted assistance. His statement
helped shape a more pragmatic GOP response
for assisting earthquake victims, one that
encouraged local populations to stay in place
by providing them necessary food and shelter,
thus preventing many of the problems
associated with large camps. Reports from
early 2006 indicated that less than 20 percent
of the affected populations had moved to
camps, with the vast majority continuing to
live in or near their home villages.
For some, camps for internally displaced
persons (IDPs) were the only housing option.
The GOP camps were well organized and
provided free public services to inhabitants.
The Mehra camp in the Allai Valley in the
NWFP provided uniforms to children to
encourage attendance at camp schools.
Various programs also provided sewing classes
and hygiene training. Although there were
concerns that people unaccustomed to such
services might be reluctant to leave, many
of these IDP camps — including the Mehra
camp — have closed or greatly scaled down.
team met with key members of the GOP
disaster response team, including the head
of the GOP’s Federal Relief Commission (FRC)
Major General Farooq Ahmad Khan. Once the
FRC strategic team was formed, USG officials
served as permanent members. U.S. officials
also participated in the special technical
working group that met regularly to develop
appropriate disaster response strategies.
Health and Sanitation. International donors
The Disaster Area Response Team (DART)
constituted the major USG civilian response
to the earthquake. Arriving in the immediate
aftermath of the disaster, it played a leading
role, not only in providing immediate relief
but also in guiding the GOP and donor
response. Working together, the Embassy
country team, the DART team, and key GOP
decision makers helped shape a more flexible
and pragmatic response.
provided high quality medical assistance in
response to the earthquake. Donors
established field hospitals, and the U.S.
military created two well-equipped health
units. Although the earthquake destroyed
most hospitals and clinics in the affected
areas, over the longer term international
medical interventions actually improved the
overall health condition among the surviving
population.
Two other issues important to health
maintenance in the earthquake-affected
areas were the provision of clean water for
drinking and bathing and the provision of
latrines. Both purified water and improved
hygiene were necessary to prevent the
outbreak of disease in IDP camps.
PUBLIC RELATIONS
Throughout the relief effort, the news media
often ignored success stories while focusing
on shortcomings or weaknesses. This tendency
was exacerbated by the absence of a
coordinated and professional communications
capacity. Many involved in the disaster
response felt it was sufficient to do good
work and let the story be communicated by
others. This attitude ignored the fact that,
particularly in times of stress, attitudes and
perceptions go a long way toward shaping
the experience of those who have been
affected
US - PAKISTAN COLLABORATION
Within days of the earthquake, Ambassador
Crocker and a U.S. interagency disaster relief
Department of Defense (DOD). The DOD’s
Combined Disaster Assistance Center (CDAC)
played an indispensable role, assisting in
virtually every aspect of the relief effort.
The Chinook helicopter in particular became
a durable symbol of American support. The
overall U.S. military effort was broadly
welcomed, not only by the NGO community,
but also by the GOP and Pakistani public at
large. The relationship established between
DART and CDAC was close and productive,
strengthening understanding across agencies.
Embassy Country Team. Strong
relationships between senior Embassy staff
and senior GOP officials were vital to the
relief effort. These contacts ensured priority
access to administrative and logistical assets.
From the outset of the disaster, the
Ambassador convened country team meetings
twice each day, seven days a week, ensuring
effective, focused coordination on earthquake
relief. All elements of the country team were
involved in the meetings, including USAID,
Department of Defense, and the Public Affairs,
Political and Economic sections of the
Embassy. These meetings helped the mission
review the overall situation, resolve issues,
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identify emerging problems and refine the
overall USG response strategy. Most
importantly, these meetings played a vital
role in establishing priorities, setting deadlines
and maintaining a targeted response.
The Embassy also funded and established two
forward operating bases (FOBs), one in the
NWFP (Mansehra) and the other in Kashmir
(Muzzafarabad). These bases provided food,
and housing for the USAID DART team. Various
Embassy staff deployed to the FOBs as officers
in charge (OICs) to manage administrative
issues, monitor relief activity and provide
political reporting. As various observers noted
at the time, a synergistic relationship
developed among various State, USAID and
other staff, in which bureaucratic differences
were set aside in pursuit of a single
humanitarian objective.
USAID/DART. Almost immediately after the
earthquake struck, the USAID DART team met
with UK and EU disaster personnel to develop
a coordinated response strategy. The top
priority was to coordinate combine efforts
and resources. Within days of the disaster,
the DART team, local and international NGOs
held a large meeting with to develop an
appropriate strategy. The DART team
encouraged the development of transitional
shelter, cash for work and rubble removal as
well.
USAID/Pakistan. Permanent staff of the US
Agency for International Development, whose
purview is normally medium and long-term
development rather than emergency
response, were seconded to the DART team.
For their part, DART team members provided
advice and technical expertise from other
disaster relief efforts. At the same time,
local staff provided input on NGO capabilities
and realities on the ground. USAID/Pakistan
took the early lead on administrative support,
obtaining necessary office space and providing
other vital logistics as the team expanded.
In addition, mission staff helped establish
and maintain links with the GOP and other
major donors.
102
Viewing contributors from all offices of the
US and Pakistan governments as comprising
a single team, the USAID/Pakistan Mission
presented a united response to the disaster.
Humanitarian relief emerged as a key element
in a program traditionally focused heavily on
health, education, good governance and
economic growth. USAID’s longstanding
contacts with local health and education
organizations proved valuable in charting the
course from emergency response to
reconstruction.
conclusion
International coordination of disaster response
efforts played a significant role in the success
of the relief operation. Despite numerous
challenges, the overall international response
to the disaster was extraordinarily rapid and
effective, as was that of the Government of
Pakistan itself.
But the Pakistan earthquake experience offers
important lessons for preparing for and
responding to future disasters in rugged
environments. The protracted nature of the
earthquake response required in such an
isolated area underscores the need for a
response mechanism that can deploy trained
professionals quickly but also for extended
periods of time.
The transition from disaster relief to
reconstruction will never be fully seamless,
and the Pakistan experience underscores the
need to be pragmatic and flexible during this
shift. While earthquake relief officially ended
in March, a transitional team remained in
place until late September 2006, coordinating
with USAID in negotiating long-term
reconstruction contracts and ensuring that
there is not a drop-off in operations while
one phase concludes and another begins.
By
Bill Berger,
Regional Adviser for South Asia,
Office of U.S. Foreign Disaster Assistance
Annexes
Annex-i:
Reconstruction Cost
Annex-ii:
First WB Review — Executive Summary
Annex-i
Total Reconstruction Cost – EQ Pak 2005
S.NO.
SECTOR
1
2
3
HEALTH
EDUCATION
HOUSING
(Rural, Urban &
Town Development)
WATER AND SANITATION
GOVERNANCE
TELECOM
POWER
TRANSPORT
SOCIAL PROTECTION
LIVELIHOOD CASH GRANT
ENVIRONMENT
TOURISM & INDUSTRY
4
5
6
7
8
9
10
11
12
TOTAL
PAK Rs.
(Millions)
US$
(Millions)
24300
53160
120000
405
886
2000
3673
12000
630
2406.60
30000
1310.6
8208
3619.20
1864.80
261172.20
261.172 billion
61.23
200
10.5
40.11
500
21.84
136.80
60.32
31.08
4352.88
4.353 billion
105
Annex-ii
DRAFT
PAKISTAN
EARTHQUAKE EMERGENCY RECOVERY PROJECT
Implementation Review Mission
September 5-14, 2006
Aide-Memoire
INTRODUCTION
1.
An IDA Mission1 carried out an implementation review of the Earthquake Emergency Recovery
Project during September 5 to 14, 2006. The objectives of the mission was to: (i) review the progress
of project implementation in the Housing, Livelihood Support, Import Financing and Capacity Building
components; (ii) review the status of the components under Contingency Arrangements, i.e., Health,
Education, Roads and Water Supply; (iii) assess procurement, financial management and disbursement
related aspects;(iv) review the compliance with IDA’s social and environmental safeguards; and (v)
appraise GoPakistan’s request for additional financing.
2.
During the visit, the IDHA Mission visited earthquake affected areas in Mansehra district in
North-West Frontier Province (NWFP) and Muzaffarabad district in Azad Jammu and Kashmir (AJK)
to review progress on the ground. The Mission also met with relevant officials of the Earthquake
Reconstruction and Rehabilitation Authority (ERRA), National Database and Registration Authority
(NADRA), National Disaster Management Authority (NDMA), Meteorological Department, Geological
Survey of Pakistan, SUPARCO, representatives of Government of NWFP (GoNWFP) and Government
of AJK (GoAJK), various donors, NGOs and beneficiary communities/house owners/households. The
Deputy Chairman of ERRA was briefed on the Mission’s findings on September 12, 2006, and a wrapup meeting was chaired by the Secretary of the Economic Affairs Division on September 14, 2006. The
Mission wishes to express its appreciation for the excellent cooperation and hospitality extended to it
by the above officials. The Mission is also grateful to the home owners/households, communities, and
other stakeholders, who met with the mission during the field visits. This Aide- Memoire sets out the
Mission’s findings and understandings reached during the mission, and is subject to confirmation by
IDA management.
Key Project Data
Basic Project Information
Board Approval
12/15/2005
Effectiveness Date
01/19/2006
Original Closing Date
MTR Date
Original Cr. Amount
Disbursed Amount
%Disbursed
06/30/2009
09/01/2007
281.8XDRM
222.5 XDRM
79
Project Performance Ratings
Summary Ratings
Previous
Development
S
Objectives
Implementation
S
Progress
Current
S
S
Ratings: HS=Highly Satisfactory; S=Satisfactory; MS=Moderately Satisfactory; MU=Moderately Unsatisfactory;
U=Unsatisfactory; HU=Highly Unsatisfactory; NA=Not Applicable; NR=Not Rated
1
106
Raja Rehan Arshad (Mission Leader, SASAR), Shahnaz Arshad (Housing Team Leader, SASEI), Tara Vishwanath (Livelihood Support
Team Leader, SASPR), Christoph Pusch (ERC Advisor, SASEI), Shahnaz Kazi (SASHD), Zahid Husnain (SASPR), Jaehyang So (SASEI),
Ayaz Parvez (SASEI), Inaam Haq (SASHD), Syed Sayem Ali (SASPR), Naveed Hassan Naqvi (SASHD), Zia Aljalaly (SASES), Javid
Afzal (SASES), Asif Ali (SARPS), Ismaila B. Ceesay (SARFM), Furqan Ahmad Saleem (SARFM), Riaz Mahmood (SACPK), Zoe Elena
Trohanis (TUDUR), Asta Olesen (SASES), Vandana Mehra (EWDSA), Shabir Ahmad (SASAR), Mohammad Azhar Ul Haq (SASEI),
Haris Khan (Consultant – SASEI), Mohammad Iftikhar Malik (Consultant – SASEI), and Mohammad Farooq (Consultant – SASEI)
DRAFT
MAIN FINDINGS OF THE MISSION
Housing Component
Program Achievements and Implementation Status
3.
The ERP Rural Housing Reconstruction Program (RHRP) has accomplished impressive
milestones to date. These include the completion2 with the exception of about 20,000 grievance cases
for which re-surveys and fresh surveys are still ongoing both in AJK and NWFP. of a detailed housing
damage assessment and beneficiary eligibility survey covering over 600,000 housing units; signing of
MOUs with around 450,000 beneficiaries; resolution of 85% of valid grievance cases through resurveys/fresh surveys; disbursement of Housing Grants to around 75% of eligible beneficiaries, translating
into Rs.29 billion ($483m); provision of training in seismic resistant construction to individuals including
artisans, survivors, beneficiaries, and community members; development of an Operations Manual as
a living document, which continues to evolve based on implementation experiences and their feedback;
launching of a menu of seismic-resistant designs and construction guidelines; initiation of a public
information campaign; commencement of reconstruction by 10-25% beneficiaries across the affected
districts, as indicated by preliminary progress monitoring surveys; operationalisation of financial
infrastructure to document, verify, and support financial disbursement; preparations to install a Management
Information System (MIS) to monitor the multiple components of the program in real time to support
its management and coordination efforts.
Issues and Next Steps
4.
In view of its impressive achievements, the PHRP is assessed to be satisfactorily achieving its
developmental objectives. However, looking ahead and in view of the extremely challenging nature
of the RHRP, some further improvements and actions are required, as categorized below:
•
Ensuring seismic compliant reconstruction through: a widening of the present menu of design
options available to the beneficiaries; expanding the outreach and effectiveness of ongoing
training and information sharing programs; mobilizing communities to start reconstruction; and
strongly discouraging and/or penalizing non-compliance, or the use of grant funds for unintended
purposes.
•
Strengthening the project monitoring framework, and thereby assisting decision-making, through
the operationalization of a Management Information system that integrates and analyzes all data
being received on damage assessment, pace of reconstruction (through PMTs), subsequent
stages of compliance verification, disbursements, and training.
•
Implementing the project ESSAF as soon as possible and in the manner intended, through the
Social Assessment and Continuous Social Impact Assessment.
•
Carrying out the agreed independent assessment of the quality and quantity of housing
reconstruction, through a third Party Technical Audit, to be conducted on a sample basis,
providing critical verification necessary for the World Bank financing of this component.
2
With the exception of about 20,000 grievance cases for which re-surveys and fresh surveys are still
ongoing both in AJK and NWFP
107
DRAFT
Livelihood Support
5.
The livelihood support cash grant component is progressing well and according to scheduletargeting process has been completed in all nine districts, payments have been initiated to all beneficiaries
who are deemed eligible, and a well designed appeals and grievance redressal mechanism to minimize
errors of exclusion has already been operationalized. Implementation has been facilitated by training
and capacity building at every stage, along with continuous support for just in time assistance to all field
teams. All instruments created for implementation (targeting forms, appeals forms and guidelines, MIS
etc.) were pre-tested in the field to ensure their applicability in the local contexts. Data management,
updating and MIS has been facilitated by procuring services of NADRA and providing the necessary
collaboration and support to manage the application of eligibility conditions for initiating payments in
tandem with completion targeting in each district. So far, payment has been initiated for 201,598 families
out of the total of 240,695 families who are deemed eligible according to program criteria. The appeals
process will also add to the total eligible families under this program, but this is not envisaged to exceed
266,000. So far, the program has disbursed about US$35 million to beneficiaries. An operational spot
check is being initiated in September 2006 to obtain a third party validation of the program. Based on
the progress summarized above, the team assesses the progress as highly satisfactory.
6.
In terms of challenges and next steps, three areas are important. Firstly, and the most urgent,
is the need to initiate a financial audit to assess transfers from banks to beneficiary accounts and
withdrawal activity of beneficiaries. Second, is the need to improve the timeliness of releases of approved
operational budgets from ERRA to the districts, which will necessitate improved coordination within
ERRA. Third, is the need to standardize the schedule of payments within districts to make it consistent
for all eligible families, and for payments for appeals cases to be consolidated so as to make them
consistent with the other beneficiaries of the district.
Import Financing
7.
A sum of US$42,444,000 was withdrawn for crude oil imports related to the retroactive financing
period by the private sector, whereas US$42,558.000 were withdrawn for imports of crude oil after the
signing of the Financing Agreement. While ERRA has obtained from the Ministry of Finance/State
Bank of Pakistan the details of imports amounting to US$ 106,864,968.90 and US$ 86,216,000 for
retroactive and post-signing period imports (amounts well in excess of the disbursed allocation), it would
need to have documentary copies of the Bill of Entries to fully support the transactions. The mission
therefore requested ERRA to obtain by September 30, 2006, or earlier, the copies of the Bill of Entries
for a review by the Bank, together with the confirmation that withdrawals from IDA have not been
duplicated with other donors, as soon as possible.
Capacity Building
8.
Institutional Strengthening. Since its inception on October 25, 2005, ERRA has grown from
skeletal staff to a robust organization of more than 200 people. Implementation of reconstruction activities
has been mostly decentralized to provincial and district level agencies- the State Earthquake Reconstruction
Authority (SERRA) for AJK, the Provincial Earthquake Reconstruction Authority (PERRA) for NWFP,
and District Reconstruction Units (DRU) covering all earthquake affected areas. In addition to ERRA,
most capacity building resources are targeted at SERRA, PERRA and the DRUs to ensure that the
Government reconstruction program runs smoothly and efficiently. Significant progress has been
achieved in terms of facilitating livelihood and housing reconstruction on the ground through
108
DRAFT
effective partnerships with many actors involved in reconstruction ranging from the Army to NGOs,
provincial/state line departments, local governments and international donors. The current level of
operating capacity for ERRA has been achieved through support provided by GoPakistan, donors and
other development partners. To date, ERRA has utilized Rs. 80 million (US$1.3 million) under this subcomponent to finance purchases of goods, mainly office supplies, vehicles, computers, and furniture.
Recommendations for enhancing the capacity of ERRA and provincial and local institutions include:
conducting a needs assessment to identify gaps in skill sets and prioritize hiring of staff, developing
training programs, hiring of professional staff from the market, and sharing knowledge with other postdisaster agencies operating in the region.
9.
Communications. The immediate need for a professionally managed communication program
was also discussed, and ERRA keenly recognizes this need and shared progress to date. Both the housing
and livelihood components have had active multimedia, public information programs from April - June
2006. Recently a knowledge management analyst was hired to help the various teams collate experiences
and updates, and prepare an Annual Review for the forthcoming One Year Remembrance (October 8,
2006). The Media Cell is also managing the print/electronic media (TV/ newspapers/ radio) and the call
centre. Recommendations on communications are outlined in detail in the
capacity building annex.
10.
Hazard Risk Management. Following the devastating 2005 earthquake, the Government of
Pakistan took a proactive approach to hazard risk management, moving from reconstruction and recovery
toward mitigation and prevention of disasters. Over the past seven months, the GoP has been in the
process of establishing and operationalizing a National Disaster Management Authority (NDMA), which
will be responsible for developing policy and implementing programs related to hazard risk reduction
at the national level, and cascading to the provincial and district levels. The 2006 National Disaster
Management Law has been drafted and submitted to Parliament for approval, which is expected to occur
over the course of the next month. In terms of next steps, the World Bank suggested that the NDMA,
in consultation with ERRA, review its planned activities and donor pledges to determine any funding
gaps which could be covered by the capacity building component in the future. The World Bank, ERR
and NDMA also agreed that multi-hazard risk assessment would be carried out under the project.
Contingency Arrangements
Health
11.
There has been steady progress in reconstruction effort in the health sector, building upon a
well coordinated emergency and early recovery response. Since approval of ERRC, GoPakistan/ERRA
has made good progress in preparing for reconstruction effort. This includes preparation and approval
of a comprehensive health sector reconstruction strategy, rationalizing health facilities to be
reconstructed/rehabilitated, defining an essential package of services, securing financing for about 70%
of prioritized/rationalized health facilities, ensuring provision of Primary Health Care (PHC) services
through prefabricated and transitional health facilities, establishing a coordinating mechanism including
key stakeholders and initiating work on setting up a monitoring system to track progress. Of the total
financing US$ 321 million needed for the health sector, ERRA has secured US$ 223.325 million with
a financing gap of about US$ 98.55 million. The majority of the financing gap is for reconstruction
of health facilities in Shangla and Kohistan Districts of NWFP and Director General Health Services
office in AJK; assessment and refitting of undamaged health facilities, provision of PHC services and
109
DRAFT
technical assistance. Although, the financing gap for the poorest and under-developed districts is a key
concern for ERRA, but ERRA’s health team envisages that the financing gap can be bridged wither
through committed support from the Government of Pakistan or through DFID budget support for
Earthquake Rehabilitation.
Education
12.
The progress in reconstruction effort in the education sector builds upon a well coordinated
emergency and early recovery response. Since approval of ERRC, there has been good progress in
preparing for reconstruction effort. This includes preparation and approval of a comprehensive education
sector reconstruction strategy. ERRA has prioritized and phased the reconstruction of education facilities
based on transparent criteria including gender and regional equity, enrolment and land availability and
accessibility. According to the strategy, 25% The overall strategy calls for 25%3 of the total reconstruction
activity was slated to take place FY07 which translates to about 1574 educational instituitions of these
362 schools allocated to major donors (ADB, UNICEF, JICA, USAID) and other than ADB which is
using the government systems to have the schools constructed, all other major donors are undertaking
implementation independently. While a clear commitment has been made as to the number of schools
to be constructed in FY07, no money figures are available for the financing of these schools from the
other major donors as they are undertaking construction using their own systems. In addition 535
education institutions have been allotted to smaller sponsors, NGOs and other organizations, and the
balance of 677 educational institutions are to be constructed in FY07 are to be funded from GoPakistan
funds. While ERRA indicates a budget of Rs. 10 billion for FY07 for education, it is not clear that these
funds have been reflected in the annual FY07 budget. As far as the financing by major donors is
concerned, it appears unlikely that the inadequacy of available funds will hold up implementation.
Already ADB has increased its approved funding for the overall education sector in the earthquake
affected areas from US$ 41 million to US$ 61 million with grant funding. This is likely to go up further
with another US$ 36 million in grant funding from the EU funneled through the ADB. ADB’s total
funding for recovery and rehabilitation in the education sector is likely to top US$ 97 million.
Water Supply and Roads
13.
Water and Sanitation (WATSAN): ERRA council has approved a strategy for the WATSAN
sector. The strategy covers all important elements. ERRA estimates that Rs. 3,674 million (US$ 61.23)
will be required to fully implement the strategy. Thus far, donors have committed Rs. 1,251 million
(US$ 20.35 million). There is, thus, a significant financial gap of Rs. 2,423 million (US$ 40.87 million).
Over 1,952 WATSAN schemes out of an expected total of 3,950 are reported already to be under
construction. 40,000 temporary latrines have been installed.
14.
Roads Sectors: ERRA council has approved a strategy for the sector covering the main elements.
It is estimated that Rs. 27,988 million (US$ 467 million) will be required for this sector. Thus far,
donors have committed Rs. 17, 746 million (US$ 296 million). There is, this, a financial gap of nearly
37% of Rs. 10,242 million (US$ 171 million). Nearly 6,480 Km roads are included to be taken up over
three years. Detailed assessment, design feasibility, and preparation of PC-1s and contracting are
underway.
3 The overall strategy calls for 25% of the total reconstruction activity in each district FY07, and 37.5% each in FY08 and FY09
110
Financial Management
DRAFT
15.
The review of the financial management and disbursement arrangements in place in ERRA and
its allied entities was conducted jointly by the World Bank, DfID, and ADB. A full text of the mission
report is attached in Annex 5. The salient issues which require management attention, and which are
largely agreed in the legal document for ERC, are as follows:
•
•
•
•
•
Urgent enhancement of the financial management staffing strength and capacity at ERRA,
SERRA, PERRA, and DRUs through recruitment of a mix of professionally qualified and partly
qualified candidates – a recruitment of the financial covenant of the ERC;
Preperation of the final accounts and report of ERRA, as an equity, and subjecting these to
independent audit before October 31, 2006 – the agreed deadline as per the financial covenant
of the ERC;
Adoption of a template of ‘special purpose’ financial statements for annual financial reporting
as agreed during the review mission;
Finalization of the terms of reference for independent audit of Livelihood Cash Grants as
required under the Credit Agreement, and conducting and completing the audit within the agreed
time frame; and,
Introduction of a robust IT-based FMIS to enhance the comprehensiveness, timeliness, accuracy,
and reliability of ERRA’s, SERRA’s and, PERRA’s financial information.
Social Safeguards
16.
The Environmental and Social Screening and Assessment Framework (ESSAF): The
implementation of the ESSAF has been delayed and needs to be undertaken on an urgent basis. The
TORs for the Social Assessment (SA) and the Continuous Social Impact Assessment (CSIA) have been
revived by ERRA. ERRA needs to provide a timeline for the implementation of these two activities.
The SA will cover all components of the program and will, inter alia, provide information on the status
of social safeguards that may get trigged particularly in hazardous areas, where affectees may need to
be relocated and resettled. ERRA will need to ensure that all such activities are in compliance with the
Bank’s social safeguards as laid out and envisaged in the ESSAF. This also entails the establishment
of the land task force in all the districts as envisaged in the Operational Manual as soon as possible, to
address concerns related to land and resettlement. The CSIA will be an independent validation of the
social safeguard issues identified by the SA.
17
Grievance Redressal Mechanism in Project Areas: Some form of grievance redressal system
is functional in the field to meet the immediate requirements of communities, particularly in areas where
army is implementing the training programs. ERRA through the SA will review the existing set up and
provide a system (to cover all areas including the PO implemented areas) that is simple, with focal
points clearly identified to receive complaints, and a mechanism to provide feedback to complainants
of the timelines by which grievances will be redressed. The grievance redressal system should be well
documented in all project areas for ease of monitoring.
Environment
18.
Implementation of ESSAF: As required in the ESSAF, ERRA has appointed a safeguard focal
point (SFP) at its headquarters in Islamabad. ERRA has developed the Environmental Strategy to address
the environmental and social aspects of all reconstruction activities. However, the environmental
management/monitoring setups at SERRA/PERRA and district levels have yet to be established under
the environmental strategy.
111
19.
The ESSAF calls for conducting environmental assessment (EA) prior to the implementation
of sub-projects. However, though the rural housing component has already been launched, no such EA
has been conducted yet. This was discussed during meetings with ERRA and it has decided that ERRA
will urgently conduct/commission this study. The World Bank will provide the terms of reference (ToR)
for this study by September 20, 2006. The EA will address aspects such as timber extraction – which
has already been identified as one of the issues, waste disposal and soil/water contamination.
20.
The ESSAF also calls for providing environmental training in order to effectively implement
the framework. This training will primarily be provided to the Environmental Monitoring Cells, which
have been envisaged at the DRU level and to the environmental staff working at the PERRA/SERRA
level.
21.
The following specific actions were discussed and agreed with ERRA:
•
ERRA will urgently conduct/commission an EA of the rural housing construction. World bank
will provide the ToR for this study by September 20, 2006.
ERRA will provide the training needs to the World Bank by September 20, 2006.
ERRA will expedite the establishment of Environmental Planning Cells at the SERRA/PERRA
level, and the Environmental Monitoring Cells at the DRU level.
•
•
Procurement
22.
During the course of the implementation of this emergency project, the Bank and ERRA have
maintained a close working relationship on an operational basis to seek procurement advice on a case
by case basis.
23.
Critical actions on some of the key requirements like hiring of qualified procurement staff and
preparation of procurement plan were delayed resulting in the procurements by ERRA, PERRA and
SERRA under the Capacity Building Component being commenced without banks prior approval.
24.
During the mission, the bank was informed that ERRA had adopted the PPRA Public Procurement
Rules 2004, with a few specific adjustments to allow it to deal with the nature of the emergency project.
In addition, a Standard Operational Procedure for handling the procurement by ERRA has been developed
and notified in conjunction with the setting up of bid evaluation and procurement committees. These
are positive developments towards ensuring efficient and transparent procurement processes in ERRA.
25.
ERRA has offered to play a coordinating role for the state and provincial entities as well, and
the plan for training of procurement staff has been agreed to be finalized by ERRA by October 15, 2006,
with a view of completing this training as soon as practicable thereafter.
112

2005-06

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